LA 


UC-NRLF 


REPORT 

OF  THE 

ADVISORY  COMMITTEE 

TO  THE 

BOARD  OF  EDUCATION 

OF  THE 

CITY  OF  LOS  ANGELES 

ON  CERTAIN  ASPECTS  OF  THE  ORGANIZATION 
AND  ADMINISTRATION 

OF  THE 
PUBLIC  SCHOOL  SYSTEM 


(BEGUN  APRIL  17  AND  CONCLUDED  MAY  22,  1916) 


GIFT  OF 


REPORT 

OF  THE 

ADVISORY  COMMITTEE 

TO  THE 

BOARD  OF  EDUCATION 

OF  THE 

CITY  OF  LOS  ANGELES 

ON  CERTAIN  ASPECTS  OF  THE  ORGANIZATION 
AND  ADMINISTRATION 

OF  THE 
PUBLIC  SCHOOL  SYSTEM 


(BEGUN   APRIL  17  AND  CONCLUDED  MAY  22,  1916) 


PAGE 

TABLE  OF  CONTENTS 

I.  INTRODUCTION 11 

1.  Resolution  of  Board 11 

2.  Letter  of  Transmittal 12 

II.  ADMINISTRATIVE  PROBLEMS. .  . 13 

1.  Enrollment  and  Attendance 13 

2.  Increase  in  Size  and  Population 13 

3.  School  Buildings  Erected  or  Annexed 14 

4.  Character  of  Population 18 

5.  Extension    of    Existing    Activities    and    Introduction    of    New 

Activities . 19 

6.  Cost  of  Such  Extension 21 

(a)  Cost  of  instruction  and  maintenance 23 

(b)  Salaries  of  teaching  force 26 

(c)  No  hasty  inf eVences  to  be  made 27 

(d)  Need  of  more  precise  methods  of  evaluation 27 

III.  COMPULSORY  EDUCATION.: 29 

1.  Need  of  a  School  Census 29 

2.  Need  of  a  Method  of  Following  up  Discharges 29 

(a)  Discharges  on  transfers  should  be  authorized  by  a  central 

office 30 

(b)  Suggested  methods 30 

3.  Disposition  of  Truants  and  Delinquent  Pupils. .  .*~ 31 

(a)  Segregation  of  truants  and  delinquents 31 

(b)  Two  methods  of  segregation 31 

(c)  Attendance  at  the  special  schools 32 

(d)  Suggested  improvements 32 

4.  Work  Permits  for  Pupils  Under  16  years  of  Age 34 

(a)     Kinds  of  permits  and  provisions 34 

5.  Ages  and  Grades  of  Pupils 37 

6.  Department  of  Compulsory  Education 40 

(a)  Personnel  and  duties 40 

(b)  Suggested  improvements 40 

7.  Recommendations 41 

IV.  THE  ELEMENTARY  SCHOOLS 43 

1.  The  Organization  of  Classes  and   Employment  of  Teachers  in 

the  Elementary  Schools 43 

(a)  Various  types  of  grading 43 

(b)  Distribution  of  pupils  in  the  regular  grades 43 

(c)  Size  of  classes 44 

(d)  Duplication  of  service  in  grades  7  and  8 50 

(e)  General  conclusions 51 

(f)  Recommendations 52 

2.  Special  Types  of  Organization  in  Regular  Elementary  Schools.  .  .  53 

(a)  Ungraded  classes 53 

/.      Number  and  enrollment 53 

//.      The  average  pupil 55 

///.      Non-promotion,   number  and  percentage 57 

IV.     Recommendations 60 

(b)  Classes  for  defectives  or  feeble-minded  children 60 

/.     Present  provisions 60 

III 


PAGE 

II.      The  psychological  laboratory / 62 

///.      Recommendations 62 

(c)  Classes  for  the  deaf 62 

(d)  Schools  for  crippled,  blind,  epileptic  and  other  defectives.  .  63 

/.      Present  provisions 63 

//.      Recommendations 63 

(e)  The  employment  of  extra  teachers  to  teach  special  subjects  .  64 

/.      Are    specially    equipped    teachers    necessary  for  such 
instruction?     If  so,  does  the  necessity  apply  to  all 

special  subjects 64 

//.     Should  grade  teachers  be  assigned  on   a  full  depart- 
mental or  part  departmental  system  or  should  special 

teachers  be  employed? 66 

///.     Special  instruction  for  individual  pupils 69 

IV.     What    should    be  the  principle  regulating   the  assign- 
ment of  special  teachers  as  to  grade  and  number? .  ...  70 
V .      Recommendations 71 

3.  The  Elementary  Course  of  Study 72 

(a)  Underlying  principles 72 

(b)  Arithmetic 74 

(c)  Geography 75 

History 77 

(e)  Language 78 

(f )  Penmanship 79 

(g)  Foreign  Language 79 

(h)     Music 80 

(i)      Drawing 80 

(j)      Manual  Arts  and  Manual  Work 80 

(k)     Home  Economics  Arts 81 

(1)      Nature  Study 81 

(m)   Agriculture 82 

(n)     Ethics 82 

(o)     Recommendations 83 

4.  Extra  Subjects  and  Activities  Not  Included  In  the  Above 83 

(a)  Department  of  Physical  Education 83 

(b)  Afternoon  Playgrounds 84 

(c)  Health  and  Development 84 

(d)  Library  department 86 

(e)  Orchestra  department 86 

(f)  Recommendations 86 

5.  The  Proficiency  of  Pupils  in  the  Los  Angeles  Schools 86 

V.     THE  INTERMEDIATE  SCHOOLS 88 

1.  Inclusiveness  of  the  Term  as  Used  in  Los  Angeles 88 

2.  Growth  in  Intermediate  Schools 88 

3.  Holding  Power  of  the  Intermediate  Schools 92 

4.  Electives  in  the  Intermediate  Schools 92 

5.  How  Students  Elect  Courses 93 

6.  The  Present  Arrangement  of  Courses  Subject  to  Change 95 

7.  Comparative  Records  in  High  School  of  Elementary  Graduates 

who  had  Attended  Intermediate  Schools  and  of  those  who  had 

Not  Attended  such  Schools 96 

8.  Distribution  of  7th  and  8th  Grade  Pupils  in  Elementary  and 

Intermediate  Schools 98 

9.  Overage  Pupils  in  the  Intermediate  Schools 98 

10.      Variation  in  Ratio  of  Teachers  to  Pupils 99 

IV 


PAGE 

11.  Need  of  Some  Standard  for   Assigning  Teaehers. . :  . 99 

12.  Opposition  to  the  Intermediate  Schools 100 

13.  A  Policy  should  be  Established  and  Observed 101 

14.  Estimating  the  Cost  of  Intermediate  Schools 102 

15.  Recommendations 103 

VI.  HIGH  SCHOOLS 104 

1.  Distinctive  Features  of  the  High  Schools 104 

2.  The  Special  Versus  the  Cosmopolitan  High  School 104 

3.  Electives  in  High  School 105 

4.  Growth  in  the  High  School  Enrollment 106 

5.  Percent,  of  High  School  Students  in  Senior  Classes 107 

6.  Elimination  of  Pupils 108 

7.  Size  of  Classes  in  Intermediate  and  High  Schools 109 

8.  Attendance  by  Schools  and  Subjects  in  Intermediate  and  High 

Schools 112 

VII.  JUNIOR  COLLEGES 125 

1.  Distribution  in  Los  Angeles 125 

2.  Growth  in  Enrollment 126 

3.  Recommendations T^.  .  .    127 

VIII.  EVENING  ELEMENTARY  SCHOOLS 128 

1.  Scope  of  Activities 128 

2.  The  Problem  of  Cost 129 

3.  Elementary  Instruction  for  English  Speaking  Pupils 130 

4.  The  Instruction  of  Foreigners 131 

(a)  Those  learning  English 131 

(b)  Those  in  citizenship  classes 132 

5.  Classes  in  Commercial  Subjects '. 133 

6.  Classes  in  the  Manual  and  Domestic  Arts,  Shop-training,  Sewing, 

Dressmaking  and  Cooking 134 

7.  Classes  for  Physical  Development 134 

8.  Classes  for  Social  Recreation,  Games  and  Dancing 135 

9.  Miscellaneous  Activities 136 

IX.  THE  EVENING  HIGH  SCHOOL 137 

1.     Subjects  Taught  and  Students  Enrolled 138 

X.  ADDITIONAL  PROBLEMS  AND  COMMENT  ON  EVENING 

SCHOOLS 140 

1.  Attendance  in  Evening  Elementary  Schools 140 

2.  Divisions  and  Semesters 140 

3.  Attendance  in  Evening  High  Schools 141 

4.  Clerical  Help  Needed 141 

5.  Attendance  in  all  Types  of  Evening  Schools 141 

6.  Employment  of  Day  School  Teachers 142 

7.  Recommendations 142 

XI.  THE  EXPERIENCE,  TRAINING  AND  CERTIFICATION  OF 

PRINCIPALS,  TEACHERS  AND  SUPERVISORS 144 

1.  In  Elementary  Schools 144 

2.  In  Intermediate  Schools. .  .    153 


PAGE 

3.  In  High  Schools 156 

4.  In  Evening  Schools 159 

5.  Appointment  of  Teachers 161 

(a)  Present  method 161 

(b)  Probationary  period 163 

(c)  Recommendations x 164 

6.  Salary  Grades — Distribution  of  Teachers 164 

7.  Services  of  Teachers 172 

(a)  Distribution  of  teachers  according  to  ratings 172 

(b)  Recommendations 174 

XII.     RECOMMENDATION    FOR    A    DIVISION    OF    EDUCA- 
TIONAL RESEARCH,  STATISTICAL  INFORMATION, 

ETC 175 

XIII,     THE  BOARD  AND  THE  SUPERINTENDENT..                       .  177 


VI 


TABLES 


PAGE 

Table  1:  Showing  Enrollment  and  Attendance  of  Pupils  in  the 

Public  Schools  of  Los  Angeles 13 

Table  2:  Statement  of  Elementary  and  Intermediate  High  School 
Buildings  Erected  or  Annexed  Since  the  School  Year 
1911-12,  According  to  Statement  of  Material  and 
Costs 15 

Table  3:.  Showing  Number  of  Native  and  Foreign-Born  Popula- 
tion in  Los  Angeles,  1910-1915 19 

Table  4:  Showing  (A)  List  of  New  Activities  Established  in  the 
Department  of  Education  in  1910  or  Subsequently 
and  (B)  Activities  Greatly  Extended  Since  1910,  With 
Data  as  to  Increase  in  Number  or  in  Staff ,  .  20 

Table  5:  Showing  the  Comparative  Distribution  of  Cost  Among 

Ten  Cities 22 

Table  G:  Showing  Cost  of  Tuition  and  Maintenance  (Excluding 
Cost  of  Buildings  or  Original  Installation)  for  Dif- 
ferent Types  of  School  Activity,  Arranged  According 
to  Various  Types  of  Schools  and  Indicating  Per  Cent. 
Increase  or  Decrease  in  Attendance  and  Cost,  and 
Increase  Per  Capita  Cost  for  the  Five  Years  1910-11 
to  1914-15 23-24 

Table  7:  Showing  Increase  of  Salaries  of  the  Teaching  Force  in  the 
Various  Types  of  Schools  from  the  School  Years 
1910-11  to  1914-15 26 

Table  8:  Showing  Length  of  Stay  of  Pupils  in  Special  Schools 

Since  their  Last  Commitment 32 

Table  9:  Showing  Record  of  Permits  of  Various  Types  Issued  or 
Approved  by  the  City  Superintendent  Through  the 
Department  of  Compulsory  Education 35 

Table  10:  Showing  Number  of  Pupils  in  Kindergarten,  Elementary 
and  High  School  Grades  Enrolled  in  the  Los  Angeles 
Schools  March  31,  1916,  Arranged  According  to  Sex, 
Age  and  Grade 37 

Table  11:  Showing  Relative  Size  and  Number  of  Regular  Elemen- 
tary Schools  Inside  and  Outside  the  Four-Mile  District .  44 

Table  12:  Showing  Average  Enrollment  per  Class  for  School 

According  to  Enrollment 45 

Table  13":  Showing  the  Number  of  Classes  Within  the  Four-Mile 
District  and  Out,  According  to  Selected  Limits  of 
Enrollment  in  Regular  and  Ungraded  Classes 46 

Table  14:  Showing  Enrollment  by  Groups  of  Classes  in  the  Grades 
with  Medians,  for  Regular  Elementary  Classes  (Ex- 
cluding Ungraded  and  Special  Classes),  for  the  Four 
Weeks  Ending  March  3,  1916 48 

Table  15:  Showing  Number  of  Classes  by  Grades,  Not  Including 

Ungraded  or  Special  Classes 50 

Table  16:  Showing  the  Number  of  Ungraded  Classes  and  Enroll- 
ment In  and  Out  of  the  Four-Mile  District,  According 
to  Groups 53 

Table  17:  Showing  the  Enrollment  of  Pupils  in  Ungraded  Classes 
According  to  Dominant  Individual  Characteristics,  as 
Reported  by  Principals  and  Teachers  for  the  Four 
Weeks  Ending  March  31,  1916 45 

VII 


PAGE 

Table  18:  Showing  Percentage  of  Over- Age  Pupils  as  of  October, 
1914,  and  March,  1916,  from  Data  Supplied  by  the 
City  Superintendent 53 

Table  19:  Showing  Number  of  Non- Pro  motions  and  Percentage  of 
Non-Promotions  in  the  Elementary  Schools  at  the 
Beginning  of  the  Present  Semester,  Distributed  Ac- 
cording to  "Under-Age,"  "Grade-Age"  and  "Over- 
Age"  Pupils 57 

Table  20:  Showing  Number  of  Boys  and  Girls  Not  Promoted  at  the 
Beginning  of  the  Last  Semester  (February,  1916),  Ar- 
ranged According  to  Age 59 

Table  21:     Showing  Number  of  Teachers  of  Special  Subjects  (Not 

Supervisors)  Employed  for  Six  Successive  Years 67 

Table  22:     Showing  Assignment  and  work  of  Assistant  Supervisors 

of  Physical  Training  in  the  Month 83 

Table  23:     Showing  Detailed  Analysis  of  Growth  in  Intermediate 

School  Enrollment,  Year  of  1910-11  to  1916 89-91 

Table  24:  Showing  Percentage  of  Pupils  in  Each  of  Six  Courses  in 
the  Intermediate  Schools  of  Los  Angeles,  February  1, 
1916 94 

Table  25:  Showing  Comparative  Records  in  High  School  of  Inter- 
mediate and  Grammar  School  Graduates 96 

Table  26:  Showing  Over- Age  Pupils  in  the  Los  Angeles  Inter- 
mediate Schools,  October  30,  1914 98 

Table  27:     Showing  Percentage  of  Enrollment  in  All  Grades 107 

Table  28:     Showing  Percentage  of  Senior  Pupils  in  High  School  of 

Total  Enrolled 108 

Table  29:  Showing  the  Elimination  of  High  School  Pupils  Accord- 
ing to  Years 109 

Table  30:     Showing  the  Distribution  of  Classes  by  Subjects  in  the 

High  and  Intermediate  Schools 110-111 

Table  31:     Showing  Attendance  by  Schools  and  Subjects  in  Inter- 
mediate and  High  Schools  for  Week  Ending  January 
^  28,  1916 112-121 

Table  32:  Showing  Form  Used  by  the  Board  of  Education  in  Re- 
questing Teachers  to  State  Schedule  of  Work  of  each 
for  School  Week  Ending  January  28,  1916 124 

Table  33:     Showing  the  Growth  in  Enrollment  of  Junior  Colleges  in 

the  Los  Angeles  High  Schools 126 

Table  34:     Showing    Growth    in    Enrollment    in    Number    of    Post 

Graduate  Students  in  the  Los  Angeles  High  Schools.  .  .  .  126 

Table  35:  Showing  Evening  Elementary  Schools  Visited  in  Two 
Weeks  and  Attendance  in  Each  Class,  With  Number 
Attending  and  Not  Attending  Day  School,  Average  of 
Each,  and  Number  of  Day  School  Teachers  Employed  137 

Table  36:  Showing  Experience,  Training  and  Certification  of  the 
Various  Grades  of  Teachers,  Principals  and  Super- 
visors in  Elementary  Schools.  These  Reports  do  Not 
Include  All  Teachers  Employed.  In  All  Cases  in 
Which  Teachers  Reported  College  Attendance,  This 
Was  Assumed  to  Include  Either  Normal  or  High 
School  Training 144-149 

Table  37:  Giving  a  Summary  of  Preceding  Table  as  the  Data 
Affect  Elementary  Teachers,  Principals  and  Super- 
visors    150 

VIII 


PAGE 

Table  38:  Showing  Training,  Experience  and  Certification  of  the 
Teaching  Force  in  Intermediate  Schools  According  to 
Number  who  Reported 153-154 

Table  38 A:  Showing  Training,  Experience  and  Certification  of  the 
Teaching  Force  in  High  Schools,  According  to  Number 
who  Reported 158-157 

Table  39:  Showing  Training,  Experience  and  Certification  of  the 
Teaching  Force  in  Elementary  Evening  Schools  Not 
Otherwise  Reported "r 159 

Table  39 A:  Showing  Training,  Experience  and  Certification  of  the 
Teaching  Force  in  Evening  High  Schools  Not  Other- 
wise Reported 160 

Table  40:  Showing  Grades  of  Salaries  of  Principals  and  Teachers 
in  the  Los  Angeles  Public  Schools  and  the  Number 
Receiving  Them : 164-165 

Table  41 :  Showing  Ratings  of  Teachers  in  the  Public  Schools  of  Los 
Angeles  as  Contained  in  the  Quarterly  Reports, 
February,  1916 172 


IX 


I 

INTRODUCTION 
TO 

REPORT    OF    THE    ADVISORY    COMMITTEE 
AUTHORIZED    BY    THE    FOLLOWING    PROCEEDINGS 

OF  THE  BOARD  OF  EDUCATION  OF  THE  LOS 

ANGELES    CITY    SCHOOL    DISTRICT    AND    THE 

LOS  ANGELES  CITY  HIGH  SCHOOL  DISTRICT 

1.       RESOLUTION    OF    BOARD 

By  unanimous  vote  of  all  members  of  the  Board  at  the  re- 
gular meeting  on  February  14,  1916,  the  following  was  adopted: 

We  recommend  that  the  Teachers  and  Schools  Committee,  together  with 
the  President,  be  and  they  are  hereby  empowered  to  arrange  with  Presidents 
BUTLER  of  Columbia  University,  and  JUDSON  of  Chicago  University,  to  select 
three  disinterested  educators  to  make  an  expert  examination  of  our  school 
system  along  lines  that  may  be  determined,  at  a  compensation  not  to  exceed 
$1500.00  each  and  $400.00  each  for  expenses. 

Pursuant  to  instructions  of  the  Board  of  Education  I  com- 
missioned Doctors  NICHOLAS  MURRAY  BUTLER,  President  of 
Columbia  University,  and  HARRY  PRATT  JUDSON,  President  of 
the  University  of  Chicago,  to  name  experts  in  educational  mat- 
ters to  come  to  Los  Angeles  to  make  a  brief  investigation  of  our 
schools'  activities  to  the  end  (as  stated  to  them)  that  we  might 
have  the  advantage  of  ''their  information,  assistance  and  advice." 
I  suggested  that  it  seemed  desirable  that  the  men  selected  should 
hail  from  eastern  states,  otherwise  in  the  matter  of  their  selec- 
tion Doctors  Butler  and  Judson  wrere  notified  that  they  were 
"to  have  absolutely  a  free  hand." 

Pursuant  to.  this  commission  Doctors  BUTLER  and  JUDSON 
selected  Doctors  ALBERT  SHIELS,  Director  of  the  Division  of 
Reference  and  Research  under  the  Board  of  Education  of  New 
York,  and  WALTER  A.  JESSUP,  Dean  of  the  College  of  Education, 
Iowa  State  University.  (Another  expert  was  named  but  was 
unable  to  come.) 

Neither  of  these  gentlemen  was  known  to  any  member  of  the 
Board  of  Education.  They  are  designated  as  the  Advisory 
Committee.  They  undertook  the  work  with  which  they  were 
charged  and  pursued  it  with  vigor.  Both  of  them  have  furnished 
ample  evidence  of  their  great  learning  in  educational  matters,  of 
their  keen  understanding  of  existing  local  conditions,  and  a  very 

11 


irrfusual  .power'  .  of  Correct  analysis.  Their  appended  report 
speaks  for  itself.  The  value  of  their  services  and  of  their  advice 
in  conference  with  the  members  of  the  Board  of  Education  and 
the  superintendent  and  his  assistants  has  been  recognized  by  all. 
The  Department  of  Education  of  the  City  of  Los  Angeles  is 
placed  under  an  everlasting  debt  of  gratitude. 

WALTER  BORDWELL, 
President  of  the  Board  of  Education  of  the 

City  of    Los  Angeles. 

2.     LETTER  OF  TRANSMITTAL 

REPORT  OF  THE  ADVISORY  COMMITTEE  TO  THE 
BOARD  OF  EDUCATION,  LOS  ANGELES,  CALIFORNIA 

Los  ANGELES,  MAY  25,  1916. 

To  The  Board  of  Education, 

Los  Angeles  City  School  District. 

In  presenting  this  report  on  the  schools  of  Los  Angeles,  we 
desire  to  emphasize  the  fact  that  it  is  in  no  sense  a  complete 
survey.  A  complete  survey  of  the  Los  Angeles  schools  would 
require  a  much  longer  time  and  a  much  larger  staff  than  are  now 
available.  The  reason  is  clear. 

In  the  succeeding  section  will  be  found  a  statement  not  only 
of  the  enrollment  and  attendance  in  the  Los  Angeles  schools  as 
they  are  now  established,  but  also  of  the  rapid  increase.  This 
increase  has  not  been  one  of  population  only.  New  types  of 
school  buildings  have  been  erected,  new  kinds  of  activities  have 
been  initiated,  and  new  laws  and  regulations  established.  The 
size  and  complexity  of  the  school  system  therefore  forbids  any 
attempt  to  make  an  elaborate  investigation  or  study  within  a 
few  weeks. 

WALTER  A.  JESSUP, 
ALBERT  SHIELS. 


12 


TABLE  1: 


II 

ADMINISTRATIVE  PROBLEMS 

1.     ENROLLMENT  AND  ATTENDANCE 
SHOWING    ENROLLMENT   AND    ATTENDANCE    OF    PUPILS    IN 

PUBLIC  SCHOOLS  OF  Los  ANGELES 
For  the  Four  Weeks  Ending  March  3,  1916 


Schools 

Enrollment 

Attendance 

Day   Elementary   (including   Kindergarten   and 
excluding  Parental  and  Intermediate.)  

51,782 

46,730 

Day  Parental  

325 

195 

Day  High  

9,436 

8,888 

Day  Intermediate  

7,219 

6,749 

Evening  High  

6,690 

2,707 

Evening    Elementary  

3,269 

941 

Totals 

78,658 

66,210 

These  pupils  were  distributed  in  an  area  covering  approximately 
400  square  miles.  At  that  time  a  supervisory  and  teaching 
force  of  3,047  persons  was  employed  by  the  Board  of  Education. 
Even  though  the  work  of  this  Committee  does  not  include  an 
inquiry  into  the  business  departments  of  the  Board,  it  is  evident 
under  such  circumstances,  that  a  survey  of  the  schools  could  be 
made  only  after  a  very  extended  inquiry,  examination. and  study. 

It  may  be  recalled  in  this  connection  that  a  survey  of  the 
schools  of  Cleveland,  not  yet  completed,  has  been  in  operation 
for  over  eighteen  months,  and  that  the  number  of  persons  en- 
gaged in  the  work  has  at  times  exceeded  fifty.  All  that  this 
Advisory  Committee  can  do  within  the  limited  time,  and  with 
the  force  at  hand,  is  to  point  out  certain  aspects  of  the  present 
organization  and  administration  of  the  public  school  system, 
and  to  make  certain  suggestions  and  recommendations.  These 
suggestions  and  recommendations  are  based  on  an  examination 
of  the  facts  which  are  included  as  supporting  data,  on  interviews 
with  members  of  the  supervisory  and  teaching  staff  and  on  the 
results  of  observation  of  schools  and  classes  in  session. 

The  members  of  this  Committee  have  visited  twelve  high, 
nine  intermediate  and  thirty-nine  elementary  schools,  as  well  as 
all  but  two  of  the  evening  elementary  and  evening  high  schools. 

2.     INCREASE  IN  SIZE  AND  POPULATION 

However  creditable  to  the  attractiveness  of  Los  Angeles  and 
to  the  energy  of  its  people  may  be  the  enormous  increase  in  size 
and  population,  this  increase  has  multiplied  seriously  the  prob- 
lems of  school  administration.  Figures  showing  the  precise 

13 


growth  of  the  city  school  district  of  Los  Angeles  are  not  available. 
A  statement  showing  the  growth  in  area  of  the  city  indicates 
a  corresponding  growth  in  this  school  district. 

Area  Population 

1910  85.15  square  Miles..  319,198 

1911  100.71   "     "   

1912  197.62   "     "   

1915        288.27  550,000 

3.     SCHOOL  BUILDINGS  ERECTED  OR  ANNEXED 

The  school  district  contains  approximately  112  more  square 
miles  than  the  city.  These  successive  increases  in  territory 
have  compelled  very  rapid  action  in  providing  for  the  adjust- 
ment of  the  school  organizations  in  the  new  districts  to  the  city 
system,  and  for  new  buildings,  as  will  be  appreciated  by  an  ex- 
amination of  foregoing  statement.  The  following  table  shows 
the  increase  in  new  buildings,  not  counting  bungalows  or  other 
unimportant  additions. 


14 


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AND  VALUE 

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000—30,000  
000—50,000  
000-  75,000  

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f  10,000—  20,000.  .  . 
20,000—30,000.  .  .  . 

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and  Plaster  
Less  than  $50,000 

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15 


INTERMEDIATE  SCHOOLS 


School 

Completed 

Construction 

Value 

BERENDO  INTERMEDIATE 
Auditorium  Building  

1912 

Brick,  plastered 

$  18,539 

BOYLE  HEIGHTS  INTERMEDIATE 

1913 

Brick 

275,184 

FOURTEENTH  ST.  INTERMEDIATE 
Main  Building.  .  .  .'  
Auditorium      and      Gymna- 
sium Building  

1916 
1912 

Brick, 
Plaster 
on  wire  lath 

87,585 
12,000 

THIRTIETH     ST.    INTERMEDIATE 
Auditorium  Building  

1913 

Frame,  plastered 

13,115 

VIRGIL  AVENUE  INTERMEDIATE 

1912 

Brick 

53,130 

16 


HIGH    SCHOOL    BUILDINGS 


School 

Completed 

Construction 

Value 

GARDENA  HIGH  SCHOOL 
Arts  and  Science  Building.  .  . 
Farm  Mechanics  Building.  .  . 
Farm  House  Remodeled  

HoLLYWOODHlGH    SCHOOL 

Fine  Arts  Building  Addi'tn  .  . 
Mechanics'  Building 

1912 
1912 
1912 

1912 
1911 

Brick 
Brick 
Frame 

Brick,  plastered 
Brick 

$  11,275 
7,140 
1,570 

43,500 

22,868 

Gymnasium  Building 

19L5 

Hollow  tile 

LINCOLN  HIGH  SCHOOL 
Main  Building  
Power  House  
Science  Building  

Los  ANGELES  HIGH  SCHOOL 
Cafeteria  Building  

MANUAL  ARTS  HiGnScnooL 
Administration  Building.  .  .  . 

POLTECHNIC  HIGH   SCHOOL 
Lecture     and     Warehouse 
Building.  . 

1913 
1913 
1913 

1911 
1912      . 

1912 

plastered 

Brick,  concrete 
Concrete 
Brick 

Brick 
Brick,  plastered 

Brick,  plastered 

35,883 

107,202 
2,500 
60,600 

17,500 
141,502 

5,080 

Mining  and  Assaying 
Building.  . 

1914 

Frame 

806 

SAN  PEDRO  HiGHScnooL 
Domestic  Science  Building.  . 
Art  Building  
Boat  House.  .  . 

1912 
1912 
1912 

Brick,  plastered 
Plastered 
Frame,  plastered 

4,825 
4,425 
11,688 

WILMINGTON  HIGH  SCHOOL 
Main  Building 

1912 

Brick 

57522 

FRANKLIN  HIGH  SCHOOL 
New  Main  Building 

1916 

Brick 

104,166 

Science  Building  
Boiler  House. 

1916 
1916 

Brick 
Brick 

45,100 
5,120 

HIGH    SCHOOLS    ANNEXED    1915 

SAN  FERNANDO  HIGH  SCHOOL 
Administration  Building. 
Industrial  Building  

VAN  NUYS  HIGH  SCHOOL 
Main  Building  
Additional  Building  
Manual  Training  Building.  . 

1906 
1913 

1914 
1912 
1912 

Frame 
Concrete 

Brick,  plastered 
Frame 
Frame 

$  28,935 
41,800 

65,000 
1,650 
1,550 

17 


4.^  CHARACTER  OF  POPULATION 

Aside  from  the  difficulties  arising  because  of  the  rapidly  in- 
creasing population,  Los  Angeles  has  to  deal  with  a  transient 
population,  which  attends  school  only  part  of  the  year.  Un- 
fortunately, no  figures  are  available  to  show  the  number  of 
these  temporary  attendants,  yet  the  number  of  such  attendants 
is  very  large. 

On  the  other  hand,  the  schools  of  Los  Angeles  enjoy  certain 
compensating  advantages.  The  climate  should  greatly  increase 
the  percentage  of  attendance  of  pupils  who  would  in  other  cities 
be  absent  on  account  of  the  great  extremes  of  temperature. 
Moreover,  Los  Angeles  is  fortunate  in  the  homogeneous  char- 
acter of  its  residential  population.  A  comparison  with  other 
cities  shows  that,  although  the  people  of  the  city,  attracted  by 
its  advantages  as  a  place  of  residence,  have  come  from  every 
part  of  the  country,  nevertheless  they  exemplify  as  no  other 
large  city  does,  what  might  be  termed  a  native  American  type; 
a  type,  moreover,  that  represents,  through  the  fact  of  removal 
from  other  parts  of  the  country  to  their  new  home  in  Los  Angeles, 
a  degree  of  energy  and  initiative  much  above  the  average. 


18 


TABLE  3:     SHOWING  NUMBER  OF  NATIVE  AND  FOREIGN-BORN  POPULATION 
IN  Los  ANGELES,  1910-1915 


Year 

Native- 
Born 

Foreign  Born 

Total 
population 

European 
and  Mexican 

Mongolian 

Total 

1910 
1915 

252,322 
421,350 

60,584 
118,650 

6,292 
9,500 

66,876 
128,150 

319,198 
549,500 

Increase 

169,028 

58,066 

3,208 

61,274 

230,302 

TIG- 


QT 


(See  T«t>1e  3  } 


trf.  roue  IG -H 


I9IQ 
70 TfU.  TffFULfiTlOH  •  3  If. /If. 


1915 


TOTRL 


The  native-born  population,  according  to  these  figures,  is 
76  per  cent,  of  the  total  population.  As  the  foreign-born  popu- 
lation includes  over  20,000  English,  Irish  and  Scotch,  the  total 
number  whose  language  is  English  constitutes  at  least  about  80 
per  cent,  of  the  inhabitants  of  the  city. 


5.     EXTENSION  OF  EXISTING  ACTIVITIES  AND  INTRODUCTION 
OF  NEW  ACTIVITIES 

The  last  five  years  have  been  notable  for  the  number  of  new 
activities  introduced  into  the  schools,  and  for  the  extension  of 
those  already  existing. 


19 


TABLE  4:     SHOWING  (A)  LIST  OF  NEW  ACTIVITIES  ESTABLISHED  IN  THE  DE- 
PARTMENT OF  EDUCATION  IN  1910  OR  SUBSEQUENTLY  AND  (B)  AC- 
TIVITIES GREATLY  EXTENDED  SINCE  1910,  WITH  DATA  AS 
TO  INCREASE  IN  NUMBER  OR  IN  STAFF 


Activity 

Year  established 
if 
later  than  1910 

Condition  in  1910 
or 
when  es  tab  lished 

Condition 
in 
1916 

NEW  ACTIVITIES 

General  Administration 
Agriculture  and  Gardening 
Nature  study  department.  .  .  . 
Orchestra  department  

Elementary  Schools 
Playgrounds  for  children.  .  . 
Appointment     of     special 
teachers     in     elementary 
schools: 

1911 
1911 
1910 

1910 
1912 

I  Supervisor 
1            "     half  time 
1 

23  Teachers 
9         ''      «' 

4  Supervisors 
3 
3 

62  Teachers 
34 

(b)  Music.  
*(c)  Domestic  science  
Intermediate  Schools  

1912 
1912 
1911 

10 
41         ""       .- 
5  Schools 

49 

78 
9  Schools 

Junior  Colleges 
(in  High  Schools)  

1912 

1  Junior  College 

3  Junior  Colleges 

EXTENDED  ACTIVITIES 

General   Administration 
Department  of  drawing  
"    home     econo- 
mics    . 
"    music  

1910 
4  Supervisors 

3 

4           " 

1916 
6  Supervisors 

5 
5 

"    physical  edu- 
cation   
"    compulsory 

2^       " 
4  officers 

5 
10  Officers 

Kindergarten  classes  
Extension  of  health    depart- 
ment: 
Physicians  

55  Classes 
4 

129  Classes 
11 

Nurses  
Parent-Teachers  Clinic.  .  .  . 

Elementary  Schools 
Ungraded  Classes  
School  Librarians 

7 
3  Dentists 

29  Classes 

7 
3  Dentists 

84  Classes 

Penny  Luncheons  
High  Schools  

1 
6  High  Schools 

9 
13  High  Schools 

*  Domestic  science  teaching  was  introduced  before  1912,  but  figure-!  for  that  year  are  given 
for  purposes  of  comparison  with  drawing  and  music. 


20 


It  is  evident  that  the  foregoing  list  includes  some  very  in- 
teresting and  significant  experiments  in  educational  administra- 
tion, which  in  many  cases  required  as  much  labor  and  effort  in 
extending  them  as  in  establishing  them  de  novo.  Among  these 
should  be  noted  the  introduction  of  school  gardens  and  of  school 
orchestras  under  supervision  of  a  separate  department,  the  es- 
tablishment of  a  large  force  of  special  teachers,  and  the  intro- 
duction of  intermediate  schools  (sometimes  referred  to  as  junior 
high  schools),  and  of  junior  colleges  in  high  schools. 

6.     COST  OF  EXTENSION 

Increase  in  the  number  of  activities  and  multiplication  of 
activities  requires  increased  expenditure. 

The  comparison  with  other  cities  indicates  that  although  the 
cost  of  the  Los  Angeles  schools  is  high,  either  for  per  capita  cost 
or  for  cost  per  inhabitant,  Los  Angeles  is  not  paying  a  dispro- 
portionate share  when  the  expenditure  is  compared  with  the 
value  of  its  assessed  property. 

The  facts  are  contained  in  Table  5 : 


21 


TABLE  5:     SHOWING  THE  COMPARATIVE  DISTRIBUTION  OF  COST  AMONG 

TEN  CITIES 


Expenditure    and    Outlay 
For  School  Purposes  For 
Each    $1000    Assessed 
Valuation     of     Property 
(After  Earle  Clark) 
(a) 

Expenditure  per  Child 
In  Average  Daily 
Attendance   For    Edu- 
cational   Purposes  for 
The   Fear  1914 
(*) 

Expenditure    per    In- 
habitant For  Operation 
and    Maintainance   of 
Schools  for   the     Year 
1914 

w 

Newark  7.J03 
Kansas  City                  4  16 

Los  Angeles  .54.43 
Seattle  48.72 
Boston  43.37 

Los  Angeles  8.45 
Boston  7.52 
Newark  6  .  94 

Cleveland                      4  72 

Pittsburg                .    .  .4.57 

Washington,  D.C..  41.  77 
Pittsburg  41.58 
Newark  41.35 
Minneapolis  40  .  86 
Kansas  City  39  .  69 
St.  Louis  36.80 
Cleveland  33.64 

Washington,  D.  C..  .6.77 
Pittsburg.  .                 6  38 

Washington,  D.  C.  .  ..4.44 
Los  Angeles  4.43 
Seattle  3  .  70 

Minneapolis  6.25 
Kansas  City  6.25 
Seattle  5  59 

Boston  3  .  70 
St  Louis.  ..  3.63 
Minneapolis  3  .  36 

Cleveland  5.58 
St.  Louis  5.56 

-KEijrr/vz  nfnmmncz.  HMJ>  OUTIAV  rwr  SCHOOL  rvurrosfs  in  /o  c/ 
3/rjrj  on  z*£n  #4*0*  tf  fssrssry   VAUU^TIOH  or 


4.7S 
4.11 

4.S7 
4.44 
4.49 

3  70 
3.7* 
3  63 
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s.st 


22 


A  closer  analysis  shows  the  distribution  of  cost  among  the 
various  school  activities: 

(A)       COST    OF    INSTRUCTION    AND    MAINTAINANCE 

TABLE  6:     SHOWING   COST   OF   TUITION   AND    MAINTAINANCE    (EXCLUDING 
COST  OF  BUILDINGS  OR  ORIGINAL  INSTALLATION)   FOR  DIFFERENT 

TYPES   OF   SCHOOL   ACTIVITY,    ARRANGED    ACCORDING   TO 
VARIOUS  TYPES  OF  SCHOOLS  AND  INDICATING  PER  CENT.  INCREASE 
OR  DECREASE  IN  ATTENDANCE  AND  COST  AND  INCREASE  PER 
CAPITA  COST  FOR  THE  FIVE  YEARS  1910-11  TO  1914-15 
KINDERGARTEN 


Date                      Attendance                  Total  cost 

Per  capita 
cost 

1910-11                       2,436                       $  99,297.41 
1911-12                       2,891                        116,513.00 
1912-13                       3,244                        156,493.54 
1913-14                       3,607                        165,899.37 
1914-15                       3,709                        195,711.61 
Increase  total  cost    1914-15  over  1910-11                               .  .  . 

$40.76 
40.30 
48.24 
45.99 
52.77 
97.9% 

"         in  attendance   1914-15  over  1910-11 

52     % 

"         per  capita  cost,  1914-15  over  1910-11  

29     % 

ELEMENTARY 

1910-11                     34,870                    $1,528,305.15 
1911-12                     33,799                      1,490,154.95 
1912-13                     35,275                      1,753,562.71 
1913-14                     38,417     «                 2,138,196.37 
1914-15                    39,023                     2,506,670.95 
Increase  total  cost   1914-15  over  1910-11 

$43.83 
44.09 
49.71 
55.66 
64.23 
.  64  1% 

in  attendance  1914-15  over  1910-11  
in  per  capita  cost   1914-15  over  1910-11   

12     % 
47     % 

SPECIAL  (TRUANT) 

1910-11                          107                       $  22,674.19 
1911-12                          177                           23,681.11 
1912-13                          208                           33,926.03 
1913-14                          224                           28,705.53 
1914-15                          230                           29,040.85 
Increase  total  cost   1914-15  over  1910-11 

$211.90 
133.79 
163.10 
128.14 
126.26 
28.6% 

in  attendacne,  1914-15  over  1910-11  
Decrease  in  per  capita  cost   1914-15  over  1910-11 

115     % 
40     %* 

INTERMEDIATE 

1910-11 

1911-12                       3,046                   $  169,489.32 
1912-13                       4,976                       372,885.26 
1913-14                       6,065                       473,064.37 
1914-15                       6,093                       581,783.08 
Increase  total  cost,  1914-15  over  1911-12  
in  attendance,  1914-15  over  1911-12  
in  per  capita  cost,  1914-15  over  1911-12  

$55.64 
74.94 
78.00  - 
95.48 
...219.6% 
100     % 
72     % 

*  Decrease 

23 

HIGH    SCHOOLS 


Date 

Attendance 

Total  Cost 

Per  capita 
cost 

1910-11                        5,258 
1911-12                        5,544 
1912-13                       5,388 
1913-14                       6,492 
1914-15                       6,894 
Increase  total  cost,  1914-15  over  1910-11.  . 
attencance,  1914-15  over  1910-11 
in  per  capita  cost,  1914-15  over  1 

$  540,960.42 
630,755.21 
774,159.29 
836,814.68 
1,019,026.05 

$102.88 
113.70 
143.68 
128.89 
126.38 

94.1% 
31     % 

910-11  

23     % 

EVENING    ELEMENTARY    SCHOOLS 


1910-11                          533                   $ 

18,181.25 

$34. 

11 

1911-12                          965 

31,554.40 

32 

70 

1912-13                       1,456 

67,199.17 

46 

15 

1913-14                        1,448 

46,738.30 

32 

.28 

1914-15                       1,656 

70,883.25 

42 

,80 

Increase  total  cost.  1914-15  over  1910-11  

289 

3% 

attendance,  1914-15  over  1910-11 

?10 

% 

« 

in  per  capita  cost,  1914-15  over  19K 

)-ll 

25 

% 

EVENING    HIGH    SCHOOLS 


1910-11                          278                     $  11,999.58 

$43  .  16 

1911-12                          374                         16,810.00 

45.20 

1912-13                       1,126                         39,616.99 

35.18 

1913-14                       1,154                         45,326.25 

37.54 

1914-15                       1,474                         56,786.36 

38.52 

Increase,  total  cost,  1914-15  over  1910-11  

373.2% 

in  attendance,  1914-15  over  1910-11  

430  .% 

Decrease  in  per  capita  cost,  1914-15  over  1910-11  

11     %* 

*  Decrease 


24 


tf< 


SCHOOL     /fCT/f/m  -3YffltacHT3  •  it  10  v/  n  H#-/f  (lee  Tjj>!e  f) 
M  l-rtcrette 


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t 


Excepting  for  special  schools  and  evening  high  schools,  the 
increase  in  cost  over  increase  in  attendance  is  considerable. 
The  increase  in  per  capita  cost  ranges  from  23%  to  72%. 

Most  of  this  increase  can  be  accounted  for  by  increase  in 
salaries.  A  portion  must  be  attributed  to  the  increase  of  the 
number  of  ungraded  classes  and  of  special  teachers  to  which 
later  reference  wi'l  be  made.  An  examination  of  Table  7 
shows  the  rise  of  salaries  in  the  public  schools  of  Los  Angeles 
during  this  period. 


25 


(B)     SALARIES    OF   TEACHING   FORCE 

TABLE  7:     SHOWING    INCREASES    IN    SALARIES    OF    THE    TEACHING    FORCE 
IN  THE  VARIOUS  TYPES  OF  SCHOOLS  FROM  THE  SCHOOL  YEARS 
1910-11  TO  1914-15 


1910  11 

1911   12 

1912  13 

1913  14 

1914  15 

Kindergarten    Grade 
Director  (Teacher  

$720-$900 
in    4   yrs. 

$720-$912 
in  5  yrs. 

$720-$960 
in  6  yrs. 

$720-$960 
in  6  yrs. 

$850-$975 
in  6  yrs. 

Asst.  Director  (Teachers)  

$600-696 
in  3  yrs. 

|c 

$1104-2400 

600-  792 
in  5  yrs. 

* 
1080-2400 

600-  840 
in  6  yrs. 

* 
1080-2400 

.  600-  840 
in  6  yrs. 

* 
1080-2400 

620-  850 
in  6  yrs. 

* 
1200-2400 

Elementary  Grade 
Principals             

Teachers  

$744-1080 
in  8  yrs. 

744-1080 
in  8  yrs. 

744-1080 
in  8  yra. 

744-1200 
in  10  yrs. 

750-1200** 
in  10  yrs. 

Teachers  of  Ungraded 

'$ii28 

$1104-1200 
3  yrs. 

1104-1200 
3  yrs. 

1200-1440 
5  yrs. 

1200-1440 
5  yrs. 

Special  or  Parental 
Classes 

1200-1440 
5  yrs. 

1200-1440 
5  yrs. 

$1350 

1200-1380 

1200-1380 

Miscellaneous 
Cooking,  Sloyd,  etc  

744-1080 
in  8  yrs. 

744-1080 
in  8  yrs. 

744-1080 
in  8  yrs. 

744-1080 
in  8  yrs. 

1200-1440 
in  5  yrs. 

Occupations 
Physical  Culture  .  .  .  .-  



1200-1380 
4  yrs. 

1200-1380 
4  yrs. 

1200-1440 
5  yrs. 

1200-1440 
5  yrs. 

Gardening  .    .    . 

1200-1380 
4  yrs. 

1200-1440 
5  yrs. 

1200-1440 
5  yrs. 

Music  and  Drawing 
High  School  Cert  

1200-1440 
5  yrs. 

Intermediate  Schools 
Principals  

$2580 

$3000 

$3000 

$3000 

Vice-Principals  

$1920 

$1920 

Teachers  with 
High  School  Cert  

900-1320 
8  yrs. 

1080-1440 
7  yrs. 

1200-1560 
7  yrs. 

1200-1680 
10  yrs. 

Teat  hers  without 
High  School  Cert  

i 

744-1080 
8  yrs. 

$744-1080 
8  yrs. 

$744-1200 
10  yrs. 

$1200-1440 
—  5  yrs. 

High  Schools 

1—  $3300 
2—  $2100 

2—  3600 
2—  3300 

2—3600 
2—3300 

3—3600 
2-3300 

4—  3600 
1—  3300 

2—  $2400 
1—  1080 

2—  $3000 
1—  1200 

2—  $3000 
1—  1200 

2—  $3000 
1—  1200 

Vice-Principals 

$2100 

$2100-2400 

$2100-2400 

$2400 

(10)    $2400 

Heads  of  Departments 

$1680 

$1560-1740 
4  yrs. 

$1560-1800 
5  yrs. 

$1560-1800 
5  yrs. 

$1560-1800 
5  yrs. 

Sub  Heads  of  Departments  

$1920 

$1800-2100 
6  yrs. 

$1800-2160 
7  yrs. 

$1800-2160 

7  yrs. 

$1800-2160 
7  yrs. 

Teachers  

$1260-1500 
3  yrs. 

$1200-1560 
8  yrs. 

$1200-1560 
8  yrs. 

$1200-1560 
8  yrs. 

$1200-1680 
10  yrs. 

Depending  on  size  of  class 
Teachers  of  the  Bl  grade  ' 


and  term  of  service. 

yere  advanced  in  1914-15  to  $1200-1440,  5  years. 


26 


The  largest  per  cent  of  increase  in  salaries  was  for  those 
teachers  in  intermediate  schools  who  do  not  hold  high  school 
certificates.  In  1911-12  such  teachers  received  from  $744.00 
to  $1080.00,  the  maximum  in  eight  years  of  service.  In  1914-15 
they  received  $1200-1440  for  the  maximum  after  five  years  of 
service.  Without  respect  to  reduction  in  time  of  service,  this 
increase  was  from  30%  to  45%.  The  smallest  per  cent  of  in- 
crease was  in  the  pay  of  elementary-  school  principals. 

(C)  NO  HASTY  INFERENCE  TO  BE  MADE 

Increase  in  cost,  large  or  small,  by  itself,  is  not  a  determinant 
of  educational  values.  An  increase  in  salaries  for  example, 
may  not  only  acknowledge  meritorious  service,  but  it  may  en- 
able a  city  to  get  better  teachers.  If  it  were  possible  to  esti- 
mate the  increase  of  educational  value  in  numerical  terms,  as 
20  per  cent,  and  of  increase  in  money  cost  as  10  per  cent,  then 
the  increase  in  cost  would  be  evidence  of  wise 'educational  ad- 
ministration. Nothing  could  be  more  unfortunate  for  a  com- 
munity than  to  measure  the  value  of  its  school  administration 
by  the  single  standard  of  reduced  money  cost.  More  and  more 
will  American  public  school  systems  require  increased  expendi- 
ture for  the  realization  of  their  fullest  possibilities.  Neither 
increase  nor  decrease  in  cost  per  se  is  necessary  evidence  of 
improved  administration;  that  fact  can  be  determined  only  by 
the  relation  of  cost  to  service. 

(D)    NEED    OF    MORE    PRECISE  METHODS  OF   EVALUATION 

The  foregoing  statement  will  scarcely  challenge  argument. 
When,  however,  an  attempt  is  made  to  determine  relative 
improvement  in  educational  values,  there  is  no  such  clear  method 
of  immediate  demonstration  as  there  is  in  determining  the  cost 
in  dollars  and  cents.  It  is  here  that  argument  and  discussion 
and  oral  assurance,  rather  than  objective  proof,  are  apt  to  pre- 
vail until  such  time  as  the  community  itself  begins  to  question, 
not  so  much  the  educational  values  as  the  increase  in  tax  rate. 
The  former  may  remain  a  matter  of  theory;  the  latter  becomes 
a  very  pressing  fact  of  experience.  It  is  important  at  such 
juncture  to  establish  the  public  educational  activities  by  ob- 
jective evidence  when  it  is  possible  to  do  so. 

The  determination  of  the  increased  value  of  any  proposed 
extension  in  educational  administration  is  possible  to  a  con- 
siderable degree.  Sometimes  the  methods  are  obvious,  as  by 
referring  to  increased  enrollment  or  increased  per  cent  of  pro- 
motions. These  are  appropriate  methods  of  demonstration, 
but  ^they  are  insufficient  and  may  be  even  unconsciously  mis- 
leading. 

27 


This  Committee  will  make  a  recommendation  for  a  special 
organization  for  the  continued  and  consistent  evaluation  of 
new  experiments  that  can  be  made  part  of  the  regular  functions 
o  the  school  administration.  With  such  an  aid  it  will  be  possible 
to  know  not  only  the  relative  generosity  of  expenditures,  but 
their  relative  wisdom  as  well. 


28 


Ill 

COMPULSORY  EDUCATION 

1.  NEED  OF  A  SCHOOL     CENSUS 

Previous  to  1911,  the  school  census  was  required  by  the  state 
law;  school  funds  were  then  apportioned  on  the  basis  of  the 
census.  Since  the  repeal  of  the  law  in  that  year,  there  has 
been  no  school  census  in  the  city  of  Los  Angeles,  a  fact  greatly 
to  be  deplored. 

Without  a  census,  it  is  impossible  to  state  how  many  children 
resident  in  the  city,  of  school  age,  are  not  attending  school. 
There  seems  to  be  no  question,  however,  but  that  there  is  a 
large  number  of  such  children  who  are  not  complying  with  the 
law.  This  statement  was  .confirmed  by  the  opinion  of  the  Super- 
visor of  the  Compulsory  Education  Division,  who  has  already 
recommended  that  such  a  census  be  made. 

2.     NEED  OF  A  METHOD  OF  FOLLOWING  UP  DISCHARGES 

From  the  figures  of  attendance  and  enrollment  submitted 
for  the  four- week  periods  ending  March  3rd  and  March  31st, 
it  appears  that  the  percentage  of  attendance  on  monthly  enroll- 
ment was  87  and  85  per  cent  respectively.  The  method  of 
computing  enrollment  and  that  of  determining  discharges,  does 
not  permit  any  very  accurate  method  of  estimating.  Even  if 
the  figures  were  satisfactory,  it  would  be  difficult  to  compare 
the  rate  of  attendance  in  Los  Angeles  with  that  in  other  cities. 
In  some  cities  no  pupil  is  discharged  until  the  reason  is  estab- 
lished by  personal  investigation,  made  by  independent  authority 
outside  the  school.  Under  such  circumstances  a  city  may  seem 
to  have  a  low  rate  of  attendance  because  pupils  are  kept  on  its 
rolls,  even  for  a  considerable  time  after  their  departure.  Such 
schools,  however,  do  conserve  the  interests  of  the  pupils.  No 
one  once  enrolled  is  permitted  to  escape  school  attendance  so 
long  as  he  is  a  resident  of  the  city  and  subject  to  the  attendance 
law.  The  state  law  in  California  provides  that  pupils  should 
be  marked  as  "left"  or  discharged  from  the  rolls  after  an  ab- 
sence of  five  days.  Such  a  rule  applied  in  cities  is  very  apt  to 
encourage  truancy.  A  pupil  once  discharged  may  be  easily 
forgotten.  Because  of  the  law,  every  precaution  should  be 
taken  to  have  the  case  of  each  child  followed  up  by  the  Depart- 


29 


ment  of  Compulsory  Education  after  the  discharge  has  been 
made.  Although  such  a  pupil  may  not  be  on  the  rolls  of  the 
schools,  he  should  be  on  the  rolls  of  the  Division  of  Compulsory 
Education,  and  periodical  reports  should  be  made  concerning 
him  until  he  returns  to  school  or  until  his  case  is  otherwise 
disposed  of. 

(A)     DISCHARGES     ON     TRANSFERS     SHOULD    BE     AUTHORIZED     BY 
A    CENTRAL    OFFICE 

According  to  the  present  practice  in  Los  Angeles,  in  the  schools 
visited  by  your  Committee,  pupils  are  discharged  when  a  trans- 
fer is  issued  to  them  to  attend  another  school.  The  issuance 
of  a  transfer  should  'ie  entirely  within  the  discretion  of  the 
principal,  but  the  pupil  should  not  be  discharged  until  evidence 
has  been  presented  that  he  has  been  accepted  in  another  school, 
or  until  the  five-day  rule  has  intervened.  Principals  should  be 
relieved  from  the  responsibility  of  insuring  the  fact  of  admission 
of  pupils  to  other  schools  or  from  using  their  own  discretion  in 
making  discharges  before  the  five-day  period  when  transfers 
have  been  issued. 

(B)    SUGGESTED    METHOD 

Transfer  blanks  should  be  issued  so  that  carbon  copies  can 
be  made  with  the  original  transfer.  The  present  transfer  card 
could  continue,  and  a  separate  and  simpler  form  added  from 
which  such  carbon  copies  could  be  made.  When  a  pupil  re- 
ceives a  transfer  from  Principal  "A"  to  go  to  a  school  in  charge 
of  Principal  "B",  Principal  "A"  should  give  the  pupil  two 
duplicate  carbon  copies  and  retain  a  carbon  copy  which  he  should 
send  immediately  to  the  City  Superintendent,  or  some  one 
whom  the  City  Superintendent  would  select,  e.  g.,  the  Super- 
visor of  Compulsory  Education.  Immediately  upon  receipt 
of  the  pupil,  Principal  "B"  should  send  a  second  copy  to  the 
same  person,  who  shou'd  then  immediately  notify  Principal 
"A":  the  pupil  could  then  be  discharged.  If  the  Supervisor  of 
Compulsory  Education  should  not  hear  from  Principal  "B" 
within  three  days,  an  officer  should  be  immediately  detailed  who 
wou'd  then  put  the  boy  in  the  school  to  which  he  had  intended 
to  go.  Even  if  Principal  "A"  should  discharge  the  boy  within 
five  days,  as  provided  by  law,  that  should  not  relieve  the  Super- 
visor from  following  up  the  case  until  it  was  disposed  of  by  hav- 
ing the  boy  actually  in  school.  According  to  present  methods, 
pupils  can  wait  a  considerable  time  between  transfers  and,  as 
a  matter  of  fact,  do  in  some  cases. 

With  the  co-operation  of  a  Compulsory  Education  Depart- 
ment such  extended  duration  of  absence  would  be  impossible. 
It  has  been  stated  that  the  freedom  from  extremes  of  tempera- 

30 


ture  of  the  Los  Angeles  climate  makes  for  a  high  rate  of  attend- 
ance. It  should  also  be  remembered  that  the  same  conditions, 
supplemented  by  the  many  attractions  of  the  city,  tend  to  in- 
crease truancy  among  those  pupils  who  are  not  disposed  to 
attend  school  or  who  lack  proper  parental  supervision. 

3.     DISPOSITION   OF   TRUANTS   AND    DELINQUENT   PUPILS 

(A)  SEGREGATION  OF  TRUANTS  AND  DELINQUENTS 
A  separate  organization  is  necessary  for  truant  and  delinquent 
pupils  who,  after  repeated  trial,  are  unable  to  adjust  themselves 
to  the  ordinary  school.  Teachers  of  the  regular  grades  should 
be  relieved  of  such  pupils,  in  order  that  they  may  devote  their 
attention  to  those  pupils  who  would  otherwise  be  neglected 
because  of  the  disproportionate  time  and  energy  which  truants 
and  delinquents  demand.  Moreover,  the  exercise  of  rigid  and 
repressive  discipline  which  the  presence  of  the  irregular  and 
disorderly  requires,  no  longer  becomes  necessary.  The  excel- 
lent spirit  and  attitude  towards  pupils,  so  noticeable  in  the  Los 
Angeles  schools,  is  not  to  be  explained  by  the  withdrawal  of 
over-troublesome  children,  but  the  absence  of  such  children 
undoubtedly  makes  it  possible  for  such  a  spirit  and  attitude  to 
exist.  The  value  to  children  in  regular  grades,  through  the 
segregation  of  truants  and  delinquents,  is  unquestionable.  The 
other  question  to  decide  is  the  value  that  accrues  to  the  offend- 
ers themselves. 

(B)    TWO    METHODS    OF    SEGREGATION 

There  are  two  methods  of  segregation;  one  involves  institu- 
tional care,  either  in  a  parental  school  maintained  by  the  Board 
of  Education,  or  in  some  institution  maintained  by  the  County 
or  State.  The  other  is  through  the  establishment  of  special 
schools  or  classes  mainta  ned  during  school  hours  only.  When 
minors  are  committed  to  institutions,  it  is  usually  through  a 
court  process;  when  committed  to  schools  under  the  administra- 
tive officers  of  education,  it  is  usually  with  the  consent  of  the 
parents  or  guardian. 

Assuming  that  either  method  is  equally  effective,  the  method 
of  commitment  to  special  schools  or  classes  is  preferable  to  the 
method  of  institutional  care  on  grounds  of  economy.  Institu- 
tional care  involves  charges  for  board  and  maintenance, 
and  under  the  California  law  would  become  a  heavy  burden. 
A  maintenance  staff  would  have  to  be  retained  in  whole  or  part 
throughout  the  year;  all  pupils  would  have  to  be  discharged  in 
June;  in  the  succeeding  fall  the  institution  would  open  with  a 
very  limited  register  that  would  gradually  increase  only  in  the 
winter  months. 

31 


There  is  no  absolute  agreement  concerning  the  relative  educa- 
tional efficiency  of  the  two  methods.  Full  institutional  care  is 
not  usually  considered  as  desirable  as  partial  parental  care  even 
in  the  poorer  homes;  on  the  other  hand,  institutional  control, 
wisely  administered,  provides  for  a  more  complete  control  of 
pupils,  and  allows  a  more  efficient  program  of  instruction  and 
training,  both  in  vocational  and  ordinary  school  branches. 

(C)  ATTENDANCE  AT  THE  SPECIAL  SCHOOLS 

The  committee  collected  certain  facts  concerning  the  ten 
parental  schools  of  the  city,  which  are  presented  in  table  8 
showing  the  number  of  months  pupils  now  enrolled  in  special 
schools  have  attended  since  their  last  commitment. 


TABLE  8:     SHOWING  LENGTH  OF  STAY  OF  PUPILS  IN  SPECIAL  SCHOOLS 
SINCE  THEIR  LAST  COMMITMENT 


Enrolled  since  the  beginning  of  the 

Enrolled 
since 

School  year 
1915-16 

Second 
semester 
1914-15 

First 
semester 
1914-15 

Second 
semester 
1913-14 

First 
semester 
1913-14 

February 
1913 

A  period  of  enrollment  in  these  schools  equivalent  to 


1-6  mo. 

7-11  mo. 

12-16  mo. 

17-21  mo. 

22-26  mo. 

27-50  mo. 

88 

24 

13 

9 

5 

14 

Of  the  total  number  now  enrolled  in  the  special  schools,  127 
are  there  for  the  first  time,  19  for  the  second  time,  6  for  the 
third  time,  and  1  for  the  fourth  time. 

During  the  present  school  year,  116  pupils  were  discharged, 
and  of  this  number  34  were  returned  to  the  regular  schools, 
and  54  returned  to  their  homes  or  went  to  work;  15  went  from 
the  city,  and  13  were  discharged  for  various  causes.  The  num- 
ber who,  as  a  result  of  instruction  in  special  schools,  were  con- 
sidered fit  for  return  to  the  regular  grades  was  about  30%  of 
the  total  discharged. 

The  special  schools  generally  are  doing  good  work  for  truants 
and  delinquents.  There  are,  however,  certain  respects  in  which 
this  service  should  be  improved. 

(D)    SUGGESTED    IMPROVEMENTS 

The  pupils  assigned,  although  they  all  have  a  history  of  truancy 
or  del  nquency,  are  so  different  in  age,  in  intelligence  and  in 
character,  that  their  association  in  single  groups  is  unfavorable 

32 


to  constructive  improvement  in  individuals.  The  groups  are 
made  up  of  pupils  who  came  from  the  4th  to  the  10th  grade. 
This  in  itself  is  not  important,  for  instruction  is  necessarily 
individual.  The  other  variations  are  important.  It  is  unwise 
to  put  in  a  single  class  an  absolutely  feeble-minded  pupil,  a 
criminal,  and  a  bright  boy  whose  truancy  is  due  to  excess  activity 
that  cannot  tolerate  the  limitations  of  the  ordinary  classroom. 

The  reasons  for  this  condition  are  caused  by  the  widely  scat- 
tered centers,  the  small  numbers  of  pupils,  and  the  lack  of  accom- 
modation for  defective  pupils.  Even  under  such  conditions, 
it  would  be  wise,  when  possible,  to  regrade  the  various  centers 
according  to  the  mental  maturity  of  the  pupils.  Certain  of  the 
parental  schools  are  now  housed  in  school  buildings  with  other 
classes.  A  class  of  younger  children  couM  be  placed  in  such 
buildings  if  other  centers  were  lacking.  Separate  grading  should 
be  made  for  defectives. 

The  principals  of  these  schools  should  be  called  in  conference 
for  the  discussion  of  their  work.  Los  Angeles  is  working  out 
a  scheme  for  the  treatment  of  truants  and  delinquents,  which 
ought  to  be  full  of  suggestion  not  only  to  this  city  but  to  many 
others.  Some  of  the  principals  have  done  excellent  things, 
even  with  a  limited  equipment,  and  the  knowledge  of  their 
contributions  should  be  shared  by  all  the  princ  pals  of  the  corps. 

The  supervision  of  the  special  schools  is  sympathetic.  It 
should  be  more  intensive.  The  theory  that  teachers  should  be 
untroubled  by  supervision  is  sound,  when  supervision  implies 
critical  faultfinding  or  when  applied  to  teachers  whose  ability 
and  experience  make  such  supervision  superfluous.  Persons 
who  are  inexperienced  or  unsuccessful  especially  need  help, 
advice  and  guidance,  by  whatever  name  it  may  be  termed. 

No  pupil  should  be  admitted  to  a  special  school  unless  on  a 
physician's  approval,  and  on  evidence  that  he  is  not  a  mental 
defective.  The  placing  of  the  latter  class  of  pupils  in  ungraded 
classes  and  in  special  truant  schools  is  due  to  the  lack  of  pro- 
vision for  them  except  in  a  single  school  building  in  the  whole 
city.  An  adequate  history  and  description  of  the  pupil  should 
be  given  to  the  teacher. 

The  special  schools  should  be  continued;  the  equipment 
should  be  improved.  When  possible,  the  equipment  in  regular 
school  buildings  should  be  used  by  pupils  in  special  schools. 
The  principals  of  regular  schools  should  be  invited  to  visit  these 
schools,  and  to  make  criticisms  and  comments 

The  record  of  attendance,  as  reported  for  the  four  weeks 
ending  March  31,  1916,  shows  an  attendance  of  143  on  an  en- 
rollment of  166;  an  average  of  86%.  This  is  a  creditable  record. 

33 


The  five-day  rule  of  discharge  does  not  permit  any  real  estimate 
of  the  regularity  of  attendance,  but  the  figures  as  given  compare 
well  with  attendance  in  the  regular  school. 

The  efforts  of  the  Supervisor  to  adopt  a  follow-up  system, 
and  to  obtain  from  principals  more  complete  data  concerning 
the  pupils  in  parental  schools  is  commended.  • 

4.     WORK  PERMITS  FOR  PUPILS  UNDER  SIXTEEN  YEARS  OF  AGE 

The  authorization  of  permits  to  leave  school  for  pupils  under 
sixteen  years  of  age  is  determined  by  the  state  law.  A  pupil 
in  the  public  schools  may  go  to  work  if  he  has  one  of  the  follow- 
ing permits. 

(A)    KINDS    OF    PERMITS   AND    PROVISIONS 

(1)  Vacation  Permit:     If  he  has  completed  the  7th  year  of 
school,  he  may  obtain  a  vacation  certificate  to  permit  him  to 
work   during   vacation   and   holidays.     This   is   issued   by   the 
principal. 

(2)  Permit  for  Outside  of  School  Hours:     A  permit  for  "out- 
side of  school  hours"  will  be  issued  on  proof  of  birth,  name  of 
intending  employer,  physical  ability,  etc.     The  applicant  must 
be  fourteen  years  of  age. 

(3)  Temporary   P&rmit:     This   is   given   without   respect   to 
grade,  and  allows  a  pupil  of  fourteen  years,  or  over,  to  go  to 
work  for  the  limited  period  stated  in  the  certificate,  on  evidence 
that  he  is  without  support.     In  Los  Angeles  the  school  authori- 
ties  require  that  the   County   Charities   certify   that  the  case 
represents  one  in  need  of  help  and  without  possibility  of  county 
relief. 

(4)  Age  and  Schooling  Certificates:  Graduate  Certificates: 
These  are  permits  given  to  pupils  who  have  covered  a  stated 
grade  and  reached  a  stated  age  under  sixteen.  These  are  of 
two  kinds;  one  is  issued  to  pupils  fifteen  years  of  age  who  have 
completed  the  7th  year,  and  one  to  pupils  fourteen  years  of  age 
who  have  completed  the  8th  year. 

In  addition,  there  is  a  provision  which  permits  pupils  to  work 
in  dramatics  and  in  the  motion  picture  industry,  provided  that 
their  school  attendance  be  not  interfered  with  or  that  they  have 
private  instruction  under  a  tutor. 

These  provisions  are  liberal.  A  temporary  permit  is  question- 
able in  that  it  allows  children  of  little  or  no  schooling  to  go  to 
work.  Certain  other  states  find  it  possible  to  provide  for  such 
cases  without  denying  the  pupil  the  opportunity  of  instruction. 

Legislation  which  excepts  special  occupations  from  the  opera- 

34 


tion  of  general  law  is  unfortunate.  It  would  be  better  if  dramatics 
and  the  motion  picture  industry  were  subject  to  the  same 
general  provisions  that  effect  trades  as  a  whole. 

There  is  a  law  which  allows  boys  to  engage  in  street  trades 
at  ten  years  of  age.  This  law  has  no  regulative  feature.  The 
Board  of  Education  should  be  authorized  to  issue  a  badge  on 
presentation  of  evidence  of  birth  by  which  such  boys  couM  be 
identified,  similar  to  methods  adopted  in  other  large  cities. 
The  minimum  age  of  ten  is  low. 


TABLE  9:     SHOWING  RECORD   OF  PERMITS   OF  VARIOUS   TYPES  ISSUED 
APPROVED  BY  THE  CITY  SUPERINTENDENT  THROUGH  THE    DEPART- 
PARTMENT  OF  COMPULSORY  EDUCATION 


Permits 

Year 

For   school 
year  ending 
in  June 

From  April 
to 
April 

Temporary  permits 

1914 

62 

Indigent  14  years 

1915 

79 

Any  grade 

1916 

*19 

Age  and  Schooling 

1914 

461 

Certificate                             1 

1915 

442 



8th  year  completed 

1916 

*239 

Age  15  years                       J 

Graduate  Certificate         ] 

1914 

100 

8th  year  completed 

1915 

121 

Age  14  years 

1916 

*96 

Permits  to  work  in             1 

1914 

connection  with 

1915 

100 

Dramatics       and        the   f 

1916 

**550 

Motion  Picture  Industry  j 

Vacation  Permits  

1914 

1915 

1916 

*37 



Outside  Permits 

1914 

1915 

1916 

'  'iy' 

*To  May  1,  1916. 

**256  of  these  permits  are  now  in  force. 


An  examination  of  these  figures  shows  that  the  number  of 
graduate  certificates  has  remained  approximately  the  same  for 
three  years.  Age  and  schooling  certificates  indicate  a  marked 
decrease  in  number,  which  is  a  very  encouraging  sign.  This 
means  that  the  number  of  pupils  leaving  school  to  go  to  work  is 

35 


becoming  gradually  less.  The  best  record  is  in  the  great  re- 
duction in  the  number  of  temporary  permits.  The  figures 
indicate  that  school  authorities  issue  such  permits  orfy  under 
extraordinary  conditions. 

Is  there  any  way  of  determining  that  the  number  of  certificates 
issued  accounts  for  the  children  under  16  not  in  school? 

If  there  were  a  school  census  there  would  be  no  question  of 
assumption.  There  are  grounds,  however,  for  stating  that  Los 
Angeles  is  not  taking  care  of  all  pupils  of  school  age. 


36 


TABLE  10:     SHOWING  NUMBER  OF  PUPILS  IN  KINDERGARTEN,  ELEMENTARY 

AND  HIGH  SCHOOL  GRADES  ENROLLED  IN  THE  Los  ANGELES  SCHOOLS 

MARCH  31,  1916,  ARRANGED  ACCORDING  TO  SEX,  AGE  AND  GRADE 


Age 

K 

1 

2 

3 

4 

5 

6 

7 

8 

H.  S 

Grades 

Total 

Boys.  . 

665 

5  Girls... 

711 

Total 

1376 

B 

1360 

307 

5   G  
T  
B.. 

1435 
2795 
131 

309 
616 

2188 

255 

3 

'.'.'.'. 

616 

6   G  

94 

2068 

312 

3 

T  

225 

4256 

567 

6 

4829' 

B.  . 

9 

870 

1621 

333 

18 

7   G  

4 

707 

1624 

483 

7 

1 

T 

13 

1577 

3245 

816 

25 

1 

5664 

B.. 

8   G  

214 
179 

1015 
796 

1275 
1482 

349 
420 

17 
23 

T 



393 

1811 

2757 

769 

40 

5770 

B 

54 

276 

840 

1000 

305 

18 

9   G  
T  
B.  . 

.... 

44 
98 
19 

200 
476 
120 

836 
1676 
354 

1347 
2347 
909 

388 
693 
1001 

24 
42 
296 

34 

5332 

10  G 

25 

85 

322 

857 

1144 

326 

27 

T  

B.. 

11  G  

T  

B  
12  G  

44 

7 
5 

12 

9 
5 

205 

44 
25 

69 

28 
21 

676 

101 
133 

234 

51 
36 

1766 

415 
360 

775 

210 
132 

2145 

841 
824 

1665 

492 
362 

622 

884 
1024 

1908 

898 
806 

61 

312 
350 

662 

798 
956 

32 
30 

62 

259 

281 

2 

2 

84 
30 

5519 
5389 

T  

B.  . 
13  G  

T  

B.. 

14  G  

T  

B.... 
15  G  

T  

B  
16  G. 

14 

3 
2 

5 

4 
1 

5 

5 
1 

6 

4 
I 

49 

7 
7 

14 

4 
6 

10 

2 
3 

5 

4 
3 

87 

16 
20 

36 

11 
12 

23 

9 

7 

16 

7 
3 

342 

104 
67 

171 

35 
38 

73 

16 
9 

25 

6 
3 

854 

203 
165 

368 

116 
59 

175 

55 

28 

83 

20 
12 

1704 

511 
372 

883 

188 
154 

342 

109 
62 

171 

23 
15 

1754 

830 
775 

1605 

478 
402 

880 

209 

167 

376 
42 

00 

540 

708 

789 

1497 

700 

680 

1380 

452 
322 

774 
125 

Of) 

114 

237 

268 

505 

689 
854 

1543 

1006 
1230 

2236 

986 
1209 

5458 
5084 
4431 
3692 

T  

5 

7 

10 

9 

32 

38 

74 

205 

2195 

2575 

37 


TABLE  10:     CONTINUED 


//.  tf. 

Age 

K 

1 

2 

3 

4 

5 

6 

7 

8 

Grades 

Total 

B  

1 

1 

2 

6 

9 

7 

21 

858 

17  G 

1 

2 

1 

1 

4 

5 

20 

869 

T  



2 

1 

4 

1 

7 

13 

12 

41 

1727 

1808 

B  

3 

2 

1 

2 

1 

3 

3 

518 

18  G  

2 

3 

2 

473 

T  

3 

2 

3 

2 

1 

6 

5 

991 

1013 

B.  . 

1 

3 

2 

2 

3 

4 

276 

19  G  

1 

1 

1 

1 

215 

T  

1 

4 



1 

3 

3 

3 

5 

491 

511 

B 

1 

1 

1 

3 

1 

139 

20  G  

1 

111 

T 

1 

1 

1 

4 

1 

250 

258 

B 

1 

1 

1 

5 

169 

21  G  

1 

1 

]  10 

T 



1 



1 





2 

• 

5 

279 

307 

Totals  .  .  . 

4409 

7038 

6464 

6343 

6308 

6073 

5550 

5433 

4502 

9981 

62101 

Ken 

Elem 

entary 

High 

3000. 


£000. 


/  500. 


SOO. 


M 


Ifr. 


r.     TYr. 


38 


TIG-7- 

DtSTKIBUTIOH    or  Pt/r/1.3   M 


fSO>    HICH  SCHtOj, 


Te  f<S£  HHP  SFJt,    sfrttiff   #) 


It  is  not  the  province  of  this  chapter  to  consider  high  school 
attendance  except  as  it  includes  pupils  of  compulsory  school 
age.  Therefore,  in  order  to  make  comparisons  of  the  number 
of  children  of  medium  ages  up  to  sixteen,  the  number  of  pupils 
of  each  age  attending  high  school  should  be  added  to  the  number 
of  children  of  corresponding  age  who  are  included  in  the  fore- 
going table  of  elementary  attendance.  This  has  been  done  and 
the  figures  are  here  presented. 


Attendance 

Increase 

Decrease 

Elementary 

school  (not 

High 

Elementary 

over  preceding 

including 

school 

and  high 

year  of  age 

kindergarten} 

6  yrs.  old 

4829 

0 

4829 

7  yrs.  old 

5664 

0 

5664 

"835 

8  yrs.  old 

5770 

0 

5770 

106 

9  yrs.  old 

*     5332 

0 

5332 

"438 

10  yrs.  old 

5519 

0 

5519 

"l81 

11  yrs.  old 

5387 

2 

5389 

... 

130 

12  yrs.  old 

5344 

114 

5458 

"69 

13  yrs.  old 

4579 

505 

5084 

"374 

14  yrs.  old 

2888 

1543 

4431 

653 

15  yrs.  old 

1456 

2236 

3692 

739 

39 


The  increase  of  835  at  7  over  6  years  of  age  is  to  be  expected. 
It  is  best  explained  by  the  great  number  of  children  who  enter 
the  first  year  at  the  age  of  seven.  The  other  increases  and 
decreases  up  to  the  age  of  14  vary  from  1  J^%  at  12  years  of  age 
to  8%  at  9  years  of  age.  But  the  reduction  of  nearly  27%  at 
the  age  of  15,  from  the  age  of  13,  is  not  easily  explained.  The 
number  of  graduate  certificates  is  too  small  to  account  for  the 
decrease.  Los  Angeles  is  not  exceptional  in  this  disproportionate 
decrease  in  attendance  at  the  .age  of  15.  Before  that  age  the 
retaining  power  of  the  Los  Angeles  schools  is  above  the  average, 
and  at  age  15  a  decrease,  even  so  large  as  27%,  when  compared 
with  decreases  in  other  American  cities,  is  not  extraordinary. 
But  this  affords  no  reason  for  accepting  such  a  decrease  at  that 
age  as  a  normal  condition.  If  the  provisions  of  the  state  com- 
pulsory law  be  kept  in  mind  the  decrease  appears  excessive. 

Various  explanations  may  be  applied  to  account  for  this 
condition.  There  may  be  merit  in  all  of  them.  The  fact  re- 
mains that  one  obvious  explanation  presents  itself  until  proved 
or  disproved  by  a  census.  It  is  that  hundreds  of  children  of 
school  age  are  not  in  school. 

6.     DEPARTMENT  OF  COMPULSORY  EDUCATION 
(A)   PERSONNEL  AND  DUTIES 

The  present  force  of  the  department  consists  of  one  super- 
visor, three  assistant  supervisors  and  six  attendance  officers. 
The  assistant  supervisors  also  discharge  the  functions  of  attend- 
ance officers.  Each  officer  reports  to  the  supervisor  in  the 
morning,  and,  after  making  whatever  clerical  records  are  neces- 
sary and  attending  to  telephone  calls  from  principals,  makes  a 
program  for  the  day's  work,  which  he  gives  to  the  switchboard 
operator.  Each  officer  is  supposed  to  leave  at  9.30  or  earlier. 
As  a  matter  of  fact,  officers  sometimes  leave  after  that  hour. 
As  a  rule  they  return  to  the  office  at  from  3.30  to  4.00  P.  M., 
and  then  make  up  their  records  for  the  day's  work. 

(B)    SUGGESTED    IMPROVEMENTS 

The  rule  requiring  attendance  officers  to  report  personally 
to  the  office,  in  the  opinion  of  the  committee,  might  well  be  sus- 
pended in  the  case  of  those  officers  who  could  often  reach  their 
districts  earlier  in  the  day  by  going  there  directly.  Arrange- 
ments could  easily  be  made  to  insure  their  presence  by  having 
them  report  by  telephone  from  a  school  at  a  required  hour. 
Furthermore,  the  period  of  day  service  should  be  extended. 
The  hour  of  9.30  is  too  late  to  begin  field  work,  and  the  work  of 
investigation  should  be  continued  till  5.00  P.  M. 

40 


The  territory  which  some  of  the  officers  are  required  to  cover 
is  so  large  that  dependence  on  trolley  travel  involves  much 
waste  of  time.  If  the  present  force  is  to  continue  at  its  present 
number,  some  arrangement  should  be  made  for  automobile 
allowance  at  a  prescribed  rate,  for  officers  assigned  to  the  sparsely 
settled  districts.  This  provision  for  expenses  would  multiply 
the  officers'  usefulness.  Properly  safeguarded,  an  automobile 
allowance  would  contribute  greatly  to  the  effic  ent  performance 
of  duty. 

The  lack  of  clerical  assistance  compels  officers  and  principals 
to  use  time  for  purely  clerical  functions  which  should  be  directed 
to  the  much  more  important  business  for  which  they  are  em- 
ployed. 

All  the  officers  hold  teacher's  certificates  — an  excellent 
regulation.  The  principals  who  were  interviewed  stated  that 
the  service  is  fairly  satisfactory,  and  that  when  cases  required 
special  investigation,  action  was  prompt.  It  was  added  that 
the  size  of  the  territory  assigned  to  officers  and  the  limited  num- 
ber employed  under  present  conditions,  prevented  equally 
prompt  reports  on  all  cases. 

The  records  of  the  office  are  in  excellent  condition  and  com- 
plete. 


7.     RECOMMENDATIONS 

The  Committee  recommends: 

1:  That  a  school  census  be  taken  and  corrected  regularly 
each  year. 

2:  That  discharges,  whether  on  transfers  or  because  of  the 
five-day  rule,  or  for  other  reasons,  be  regulated  ac- 
cording to  rules  which  shall  be  enforced  by  the 
Department  of  Compulsory  Education. 

3:  That  the  Superintendent  prepare  a  program  for  im- 
proving the  present  commendable  service  of  the 
special  schools,  which  shall  include  better  grading, 
more  suitable  equipment,  and  wider  extension  of  the 
best  methods  carried  on  in  some  of  these  schools. 

4:  That  no  pupils  be  assigned  to  special  schools  except 
after  medical  examination,  and  upon  evidence  that 
the  pupil  is  mentally  responsible  and  physically  able 
to  cover  the  distance  required  to  reach  the  school. 

41 


5:  That  when  pupils  are  assigned  to  special  schools,  in 
addition  to  the  usual  trans  er  card,  there  be  a  state- 
ment giving  a  history  of  each  case  to  be  compiled 
by  the  attendance  officer  in  charge,  in  co-operation 
with  the  principa1  and  teacher  who  have  had  the 
pupil  in  their  charge. 

6:  That  the  hours  of  field  service  of  attendance  officers 
be  extended,  and  adequate  means  of  transportation 
afforded  when  possible. 

7:  That  a  clerk  be  assigned  to  the  office  of  the  Super- 
visor of  Compulsory  Education. 


42 


IV   . 

THE  ELEMENTARY  SCHOOLS 

1.     THE    ORGANIZATION    OF    GLASSES    AND    EMPLOYMENT    OF 
TEACHERS  IN  THE  ELEMENTARY  SCHOOLS 
(A)  VARIOUS  TYPES  OF  GRADING 

Besides  the  regular  elementary  grades,  extending  from  the 
Kindergarten  and  first  year  to  the  eighth  year,  Los  Angeles  makes 
provision  for  delinquent  and  truant  children  in  the  special 
schools  already  described;  in  ungraded  classes,  for  average, 
backward  or  precocious  children;  and,  to  a  limited  degree,  for 
mentally  defective  children  and  for  deaf  children.  The  extent 
and  adequacy  of  each  of  these  will  later  be  considered. 

(B)     DISTRIBUTION    OF    PUPILS    IN    THE    REGULAR    GRACES 

The  graded  system  aims  to  segregate  pupils  into  groups 
whose  knowledge,  maturity,  ability  and  training  are  such  as  to 
make  their  presence  in  a  single  unit  of  advantage  to  themselves. 

This  does  not  imply  that  the  pupils  so  grouped  are  identical. 
Subgrouping  and  individual  attention  and  instruction  will 
always  be  necessary  in  any  program  for  efficient  teaching. 

The  ideal  of  purely  individual  teaching,  like  other  ideals  in 
life,  is  limited  in  its  realization  by  practical  considerations.  A 
theorist  might  claim,  for  example,  that  no  more  than  ten  pupils 
should  be  taught  by  a  single  teacher;  the  cost  of  such  a  system 
would  be  prohibitive.  But  it  must  always  be  remembered  that 
a  grading  system  cannot  afford  to  distribute  pupils  so  that 
every  seat  should  be  filled.  Children  are  not  pegs  to  be  placed 
in  any  available  holes. 

The  educational  authorities  as  practical  administrators  must 
supervise  the  distribution  of  pupils  in  grades,  not  so  as  to  see 
how  cheaply  it  can  be  done,  but  how  well  it  can  be  done  under 
the  practical  lim  tations  imposed  by  distance,  seating  capacity 
and  amount  of  funds  at  hand. 

Excluding  from  consideration  the  segregation  of  those  special 
types  of  pupils  whose  presence  in  the  regular  grades  would  be 
of  positive  disadvantage  to  other  pupils  and  to  themselves,  the 
subject  of  inquiry  is,  "How  successfully  does  the  present  grad- 
ing system  distribute  pupils  in  regular  grades  in  the  Los  Angeles 
schools?" 

43 


There  is  no  standard  of  that  number  of  class  enrollment  which, 
without  extravagance,  will  conserve  the  best  interests  of  pupils. 
Such  investigations  as  have  been  made,  based  on  the  somewhat 
dubious  criterion  of  number  of  promotions,  permits  an  enroll- 
ment in  excess  of  35  and  less  than  40. 

This  is  not  a  positive  standard,  though  a  fairly  good  one  in 
practice  for  regular  elementary  pupils.* 

*For  investigation  of  size  of  classes,  consult  "Size  of  Class  as  a  Factor  in  Efficiency"  Har- 
lan:  (Educational  Administration  and  Supervision,  March  1915):  "Class  Size  and  School  Pro- 
gress,"  Boyer  (Phychological  Clinic,  May  1915):  "Size  of  Classes  and  School  Progress," 
Cornman  (Psychological  Clinic,  December  1909.) 

(C)    SIZE    OF    CLASSES 

The  Board  of  Education  recently  received  a  report  based  on 
actual  attendance  showing  the  average  attendance  per  class  in 
the  Los  Angeles  Schools  to  be  27.  Enrollment  and  not  attend- 
ance is  a  proper  basis  for  determining  assignment  of  teachers. 
Moreover,  in  the  report  referred  to,  all  types  of  classes  were 
included;  ungraded  classes,  parental  classes,  defective  classes. 
The  divisor  was  not  the  actual  number  of  class  units,  but  the 
number  of  regular  teachers,  plus  the  number  of  principals. 
Obviously,  this  method  of  computation  is  misleading. 

The  average  enrollment  of  class  units  under  a  single  elemen- 
tary teacher  in  regular  grades  is,  in  the  schools  of  Los  Angeles, 
for  the  four  weeks  ending  March  3,  not  27  but  35.  This  does 
not  indicate  an  extravagant  assignment  of  teachers. 

In  presenting  the  facts  of  distribution  by  schools  and  grades, 
it  has  seemed  wise  to  divide  the  schools  into  two  groups,  those 
in  the  more  congested  region  of  the  city  and  those  outside  of  it. 

If  from  the  corner  of  San  Pedro  and  Fourteenth  Streets  as  a 
center,  a  circle  with  a  four-mile  radius  be  drawn,  this  circle 
would  enclose  a  territory  covering  approximate^  fifty  square 
miles.  The  part  of  the  city  school  district  outside  of  this  circle 
wou'd  cover  approximate  y  350  square  miles. 

TABLE  11:     SHOWING  RELATIVE  SIZE  AND  NUMBER  OF  REGULAR  ELEMEN- 
TARY   SCHOOLS    INSIDE    AND    OUTSIDE    THE    FOUR-MILE    DISTRICT 


Schools  having 

Within  four-mile 

Outside  four-mile 

enrollment 

circle 

circle 

Under  100 

3 

25 

200 

6 

21 

300 

11 

9 

400 

12 

6 

500 

20 

4 

600 

9 

2 

700 

9 

800 

3 

900 

2 

1000 

1 

44 


It  will  be  noted  that  of  the  75  schools  with  less  than  400 
enrollment,  20  are  within  the  four-mile  district  and  55  out  of  it. 
There  are  29  schools  with  an  enrollment  of  from  400  to  600  in 
the  district,  and  but  6  such  schools  without.  No  school  out  of 
the  four-mile  d'strict  had  as  many  as  600  pupils  enrolled;  there 
were  15  such  schools  in  the  district. 

TABLE  12:     SHOAVING    AVERAGE    ENROLLMENT    PER    CLASS   FOR    SCHOOL 

ACCORDING  TO  ENROLLMENT 
AVERAGE  ENROLLMENT  PER  CLASS  FOR  EACH  SCHOOL 


Classes  having 
average  enrollmrnt 
of  from 

Number  of 
schools  within 
4-mile  circle 

Number  of 
schools  outside 
4-mile  circle 

Total 

10  to  20 
20  to  25 
25  to  30 
30  to  35 
35  to  40 
40  to  45 
45  to  50 
50  to  55 

"2 
3 
12 
34 
22 
3 

5 
9 
21 
19 
13 

5 
11 
24 
31 
47 
22 
3 

Totals  

76 

67 

.     143 

or  THt 


riG-8- 


J./TKCE     5CHOOJ.S      /ff  f!nj>    OUT 


/TKE/f       (see  T*i,ff  g) 


D 


Qu1 


4  miU 


Such  average  enrol  ments  as  are  10  to  20  or  20  to  25  for  in- 
dividua  schools  immediately  challenge  examinations.  There 
may  be  good  reasons  why  28  per  cent,  of  the  schools  of  the  city 
have  an  enrollment  of  ess  than  30,  and  why  35  per  cent,  of  the 
schools  should  have  an  average  register  in  excess  of  40,  but  it 
should  be  established  that  the  necessity  exists.  An  average 
register  of  more  than  40  in  a  school  implies  a  number  of  classes 
in  excess  of  that  figure. 

45 


TABLE  13:     SHOWING  THE  NUMBER  OF  CLASSES  WITHIN  THE  FOUR-MILE 

DISTRICT  AND  OUT,  ACCORDING  TO  SELECTED  LIMITS  OF  ENROLLMENT  IN 

REGULAR    AND    UNGRADED    CLASSES 


Classes 
having  En- 
rollment 
of 

Within  four-mile  circle 

Outside  four-mile  circle 

Regular 

Ungraded 

Total 

Regular 

Ungraded 

Total 

10-14 
15-19 
20-24 
25-29 
30-34 
35-39 
40-44 
45-49 
50-54 

5 
8 
30 
70 
200 
251 
254 
84 
16 

"35" 
25 
4 
3 

5 
43 
55 
74 
203 
251 
254 
84 
16 

4 
14 
35 
70 
86 
88 
52 
7 
1 

4 
26 
39 
71 

86 
88 
52 
7 
1 

12 
4 
1 

Total 

918 

67 

985 

357 

17 

374 

Number  of  regular  classes 

Number  of  ungraded  classes 


Total  number  of  classes 


1275 

84 

1359 


riG-9 


OT 


Cl#33£3  .  IN  AXJ>    OUT  OT  T/fJE 


.      s 


Jfntft  district.          \O*1  of  Jl>f4*nife  JiJrid. 


46 


There  were  1275  class  units  in  the  regular  elementary  grade, 
each  requiring  the  services  of  a  regular  teacher.  Of  these  376, 
or  about  30  per  cent,  were  distributed  in  87^  per  cent,  of  the 
school  territory.  As  might  be  expected,  classes  in  this  territory 
were  smaller;  the  paucity  of  pupils  would  increase  the  difficulty 
of  proper  grading;  the  distance  between  schools  would  make 
adjustments  for  better  grading  difficult;  the  cost  of  instruction 
for  the  pupils  would  necessari  y  be  greater. 

A  closer  analysis  of  the  table  shows  that  in  the  four-mile 
district,  there  are  313  classes  smaller  and  354  classes  larger  than 
are  necessary  or  desirable,  according  to  prevailing  standards. 

This  does  not  mean  that  all  the  small  classes  can  be  in- 
creased or  that  all  the  large  classes  can  be  decreased.  Such 
miracles  of  educational  administration  can  be  performed  on 
paper  only. 

It  does  mean  that  a  statement  of  such  facts,  accompanied  by 
distribution  in  grades,  should  be  studied  by  educational  adminis- 
trators when  the  organization  sheet  for  the  new  term  is  pre- 
sented, in  order  to  discover  what  re-adjustments  might  be  made 
within  the  schools  or  in  neighboring  schools,  not  only  or  pur- 
poses of  economy,  but  for  better  grading  and  for  the  reduction 
of  large  class  units. 

Principals  alone  cannot  do  this.  Their  efforts  are  limited  to 
their  own  schools.  All  of  them  are  deeply  concerned  in  the 
welfare  of  pupils;  not  all  of  them  have  learned  that  the  best  type 
of  administration  is  one  which  not  only  secures  the  maximum 
results  educationally,  but  which  can  do  so  without  an  unneces- 
sary number  of  teachers.  Not  every  teacher  of  a  school  staff 
must  be  retained  in  a  particular  building  if  the  services  of  one 
are  not  needed  there,  and  if  she  may  as  easily  be  dispensed  with 
for  service  in  another  building  during  a  succeeding  semester. 


47 


TABLE  14:     SHOWING  ENROLLMENT  BY  GROUPS  OF  CLASSES  IN  THE  GRADES 
WITH  MEDIANS,  FOR  REGULAR  ELEMENTARY  CLASSES  (EXCLUDING 
UNGRADED  AND  SPECIAL  CLASSES),    FOR  THE  FOUR  WEEKS 
ENDING  MARCH  3,  1916 


Grade  of 
Class 

10-14 

15-19 

20-24 

25-29 

30-34 

35-39 

40-44 

45-49 

50-54 

Med- 
ian 

1st  yr  

0 

0 

4 

28 

56 

48 

39 

8 

0 

34.4 

1-2    "  

0 

1 

4 

10 

21 

15 

6 

1 

2 

31.5 

2nd  "  

0 

1 

2 

9 

34 

40 

33 

12 

1 

36.5 

2-3  "  

0 

0 

2 

8 

10 

18 

11 

3 

1 

35.8 

3rd  "  .... 

0 

0 

0 

8 

32 

32 

49 

8 

2 

38 

3-4  "  

0 

0 

2 

9 

9 

11 

10 

2 

6 

36 

4th  "  

0 

0 

0 

5 

16 

48 

34 

16 

1 

37.8 

4-5  "  

0 

0 

1 

2 

5 

15 

16 

6 

1 

39 

5th  " 

0 

1 

1 

8 

25 

30 

40 

10 

3 

38 

5-6  "  

0 

0 

3 

10 

9 

9 

13 

1 

0 

34.3 

6th  "  

0 

0 

2 

5 

22 

45 

27 

13 

0 

37.3 

6-7  "  

0 

0 

1 

1 

3 

6 

2 

0 

0 

35.3 

7th  "  

0 

1 

3 

2 

11 

10 

10 

3 

1 

35.8 

7-8  "  

1 

2 

3 

6 

9 

3 

6 

0 

0 

30.6 

8th  "  

0 

1 

2 

4 

14 

8 

6 

0 

3 

33.3 

Several  grades 

in  a  class 

8 

15 

35 

25 

10 

1 

4 

4 

0 

23 

Total.. 

9 

22 

65 

140 

286 

339 

306 

91 

17 

35  .7 

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48 


The  grades  having  a  median  register  of  less  than  35  were  in  the 
order  of  smallest  enrollment. 

(1)  Classes   in   which    more    than   four   half -grades    were 

represented. 

(2)  Certain  classes  in  which  four  half -grades  were  taught, 

i.  e.  median  combination  classes  of  grades  7  and  8 
grades  1  and  2  and  grades  5  and  6. 

(3)  Classes  of  the  eighth  year. 

(4)  Classes  of  the  first  year. 

The  grades  having  a  median  enrollment  of  more  than  37 
were  in  the  order  of  largest  enrollment. 

(1)  Combination  classes  of  grades  4  and  5. 

(2)  Classes  of  grade  3. 

(3)  Classes  of  grade  4 

(4)  Classes  of  grade  6 

(5)  Classes  of  grade  5 

The  distribution  of  classes  with  enrollment  in  excess  of  39  was : 
Enrollment  40-44  306  classes,  or  24.  per  cent,  of  the  total. 
45-49    91        "        "  7.2    "       "       "      "      " 
50-54    17        "        "    1.3    "        "       "      "      " 

Every  effort  should  be  made  in  a  school  system  to  reduce 
these  congested  classes. 

The  distribution  of  regular  elementary  classes  with  enrollment 
less  than  30  was: 

Enrollment  less  than  20,  31  classes,  or  2.4  per  cent,  of  the 
total. 

Enrollment  20-24,    65  classes,  or  5.1  per  cent,  of  the  total. 
25-29,  140      "        "  10.9   "        "     "     "      " 

Some  of  these  small  enrollments  are  probably  necessary 
because  of  the  establishment  of  classes  in  sparsely  inhabited 
districts. 

A  comparison  of  the  number  of  classes  by  grades  is  shown 
in  Table  15. 


49 


TABLE  15:     SHOWING   NUMBER   OF   CLASSES   BY   GRADES,    NOT   INCLUDING 
UNGRADED  OR  SPECIAL  CLASSES 


Grade 
of 
Class 

Number  of  classes 

Of  a  full  or  half 
grade 

Of  more  than  a 
full  grade 

Of  more  than  2 
full  grades 

1  year 

193 
'132 

iai 

120 
118 
'114 

'41 
"38 

60 

'53' 
49 
46 
45 
'l3' 
-30' 

102 

1-2 

2 

2-3  
3  
3-4  
4 

4-5 

5  
5-6  
6  
6-7  
7  
7-8  
8 

More    than    2    full 
grades  

Totals  

887 

296 

102 

Total . . 


1275 


It  will  be  observed  that  the  number  of  classes  is  relatively 
consistent  excepting  for  the  sudden  descent  in  number  of  grade 
1  to  grade  2,  and  of  grade  6  to  grades  7  and  8.  The  fall  in  grades 
3  and  4  is  probably  accounted  for  by  the  enlarged  enrollments 
of  classes,  and  the  reduction  in  grades  5  and  6,  which  have  smaller 
enrolments  from  causes  which  can  be  discovered  only  when  a 
careful  analysis  can  be  made  of  reasons  for  discharge  of  pupils 
in  those  grades.  The  Los  Angeles  City  School  District  offers 
an  excellent  field  for  important  studies  of  the  kind  that  will 
affect  the  proper  distribution  of  classes.  They  may  be  made 
when  facilities  will  be  available. 

The  great  fall  in  grades  7  and  8  was  explained  in  a  large  meas- 
u  e  by  the  establishment  of  the  Intermediate  Schools.  It 
must  not  be  hastily  assumed  that  these  schools  entirely  explain 
the  difference,  for  such  assumptions  require  confirmation  by 
future  study. 

(D)    DUPLICATION   OF   SERVICE    IN   GRADES    7   AND    8 

The  Intermediate  School  is  considered  elsewhere  in  this 
report.  Without  reference  to  its  merits,  it  is  to  be  noted  that 
an  intermediate  school  bears  very  close  relation  to  cost  of  in- 

50 


struction  in  elementary  schools.  If,  for  example,  this  type  of 
school  shou  d  accomodate  pupils  of  the  seventh  and  eighth  years 
from  neighboring  elementary  schools,  and  if  the  cost  of  instruc- 
tion were  equivalent  to  the  cost  of  employing  teachers  for  these 
grades  in  the  elementary  schools,  cost  would  be  a  negligible 
factor.  If  the  Intermediate  school  employs  a  greater  number 
of  teachers  than  would  be  required  in  the  elementary  schools 
for  the  same  number  of  children,  or  if  such  teachers  are  paid 
higher  salaries  (as  is  the  case  in  Los  Angeles),  then  for  both 
reasons  the  cost  would  be  higher.  It  would  be  necessary  in 
such  a  case  to  consider  whether  increased  cost  was  compensated 
for  by  improved  service  or  by  greater  educational  benefit  to 
pupils.  This  is  a  topic  belonging  properly  to  a  discussion  of 
the  Intermediate  schools. 

But  if,  in  addition  to  the  cost  of  teachers  in  Intermediate 
schools,  whether  less  or  more,  or  whether  the  instruction  be 
better  or  not,  the  Elementary  schools,  which  feed  the  Inter- 
mediate school,  also  establish  seventh  and  eighth  grades  of 
their  own,  then  the  Board  of  Education  is  duplicating  service. 

In  several  cases,  at  the  request  of  parents,  some  pupils  have 
been  kept  in  the  elementary  schools  and  some  have  been  sent 
to  Intermediate  schools,  the  exceptions  being  made  for  various 
reasons,  all  of  them  doubtless  satisfactory  (to  the  educational 
authorities,  and  all  of  them  contributing  to  increased  cost. 

If  this  method  of  election  is  to  be  determined  by  parents,  then 
the  cost  of  teaching  in  these  grades  will  be  increased  to  the 
extent  that  duplication  occurs.  Parents  are  not  responsible 
for  school  administration.  Parents  are  and  should  be  interested 
in  what  appears  to  them  to  be  the  best  educational  interests  of 
their  particular  child  as  they  see  it.  They  cannot  appreciate 
the  whole  problem  of  administration  as  it  affects  all  children. 
When  the  organization  and  administrat'on  of  the  school  system 
is  to  be  determined  primarily  by  local  bodies  of  citizens,  a  Board 
of  Educat  on  must  be  prepared  to  pay  heavily.  The  duplica- 
tion of  seventh  and  eighth  grade  teachers,  the  multiplication  of 
very  small  classes  in  high  schools,  and  similar  provisions  in- 
crease cost  at  a  rapid  rate.  In  this  matter  it  would  be  wise, 
both  on  the  ground  of  equity  to  all  localities,  and  of  reasonable 
expenditure,  to  establish  a  clearly  defined  policy  for  which  the 
Board  of  Education  and  its  officers  would  be  responsible  and 
which  they  would  carry  out  consistently. 

(E)    GENERAL   CONCLUSIONS 

In  general,  it  may  be  stated  that  the  waste  due  to  the  employ- 
ment of  an  unnecessary  number  of  grade  teachers  is  probably 
not  a  large  one.  A  careful  examination,  checked  by  reference 

51 


to  seating  capacity,  distance,  and  propriety  of  grading,  indicates 
that  the  total  number  of  classes  could  have  been  reduced  by 
approximately  25, — a  waste  of  but  2  per  cent  in  this  respect. 
This  conservative  statement,  it  must  be  understood,  applies  to 
the  appointment  of  regular  grade  teachers,  not  to  that  of  all  the 
teachers  in  the  elementary  schools. 

The  enrollment  of  congested  classes  should  be  reduced.  This 
should  be  a  matter  of  first  consideration  in  offering  plans  of 
school  organization  before  the  beginning  of  the  term  or  semester. 


(F)    RECOMMENDATIONS 

The  Committee  recommends: 

1:  That  proposed  organization  of  each  semester  be  re- 
gularly examined  before  the  semester  begins,  by 
officers  in  charge  of  schools,  for  the  purpose  of  deter- 
mining adjustments,  consolidations  and  transfers,  in 
order  to  avoid  the  organization  of  over-sized  classes, 
or  the  assignment  of  unnecessary  teachers,  if  any. 
Charts  arranged  to  show  proposed  enrollments  ac- 
cording to  grades  and  number  of  pupils  will  be  found 
of  advantage  in  making  such  an  examination. 

2:  That  the  number  of  teachers  to  be  permanently  em- 
ployed for  a  year  be  determined  by  the  number  re- 
quired in  the  semester  in  which  the  enrollment  is 
lower.  This  is  usually  the  spring  semester,  which 
may  be  approximated  in  advance.  This  recommenda- 
tion is  made  on  the  assumption  that  it  is  legally 
possible  to  employ  competent  teachers  for  the  period 
during  which  their  services  may  be  required. 

3 :  That  an  examination  be  made  of  the  schools  now  acting 
as  feeders  to  intermediate  schools,  to  determine  what 
policy  should  be  established,  either  as  to  duplication 
of  seventh  and  eighth  grades  in  elementary  and  inter- 
mediate schools,  or  duplication  in  certain  selected 
schools,  or  no  duplication. 

4:  That,  in  accordance  with  the  recommendations  fre- 
quently made,  there  be  established  a  division  which 
will  collate  data  and  prepare  statements  to  enable 
the  executive  head  to  assign  teachers  and  to  grade 
schools  so  as  to  secure  the  best  results  for  instruction 
without  any  unnecessary  expenditure. 

52 


2.     SPECIAL  TYPES  OF  ORGANIZATION  IN  REGULAR 
ELEMENTARY  SCHOOLS 

Besides  the  special  schools  for  truants  and  delinquents,  there 
are  classes  for  those  whose  presence  conflicts  with  the  instruc- 
tion of  the  majority  of  the  pupils,  and  whose  own  progress  is 
impeded  in  regular  classes  because  of  over-age,  backwardness, 
precociousness  or  mental  or  physical  disability.  Such  pupils 
when  not  provided  for  in  ungraded  classes  are  placed  in  classes 
for  defectives  or  for  the  deaf.  There  are  therefore,  (1)  Ungraded 
classes,  (2)  Classes  for  defective  or  feeble-minded  children,  and 
(3)  Classes  for  the  deaf. 

(A)    UNGRADED    CLASSES 

/.  Number  and  Enrollment 

TABLE  16:     SHOWING  THE  NUMBER  OF  UNGRADED  CLASSES  AND  ENROLL- 
MENT   IN   AND    OUT    OF    THE    FoUR-MlLE    DISTRICT,    ACCORDING 

TO  GROUPS 


Enrollment 

10-14 

15-19 

20-24 

25-29 

30-34 

Total 

Inside  4-mile  Dis- 
trict   

34 

25 

5 

3 

67 

Outside  4-mile  Dis- 
trict 

1 

10 

4 

2 

17 

Total  

1 

44 

29 

7 

3 

84 

The  median  enrollment  for  the  city  of  ungraded  classes  is 
18.6.  This,  if  measured  by  ordinary  standards,  is  a  costly 
organization;  yet  it  may  mean  educational  economy.  Like 
the  special  classes  for  truants  and  delinquents  which  have  yet 
lower  enrollment,  the  ungraded  classes  are,  generally  speaking, 
a  good  educational  investment. 

An  examination  of  the  distribution  of  ungraded  classes  in- 
dicates that  there  are  schools  in  which  the  proportion  of  un- 
graded pupils  to  the  total  enrollment  does  appear  unnecessarily 
large,  and  with  no  apparent  reason.  One  school  in  a  good 
neighborhood  has  an  enrollment  of  169  with  14  of  the  pupils 
in  an  ungraded  class,  a  ratio  of  .085.  Another  school  with  an 
enrollment  of  862  in  a  neighborhood  that  ought  to  present  some 
real  problems,  has  an  ungraded  class  of  21,  or  a  ratio  of  .027. 
These  rat'os  cannot  be  uniform,  but  the  discrepancies  seem  large. 
Every  scheme  of  school  organization,  however  excellent,  is 
measured  by  some  enthusiastic  principal  who  has  no  thought 
whatever  of  reasonable  limits  of  expenditure.  What  is  needed 
is  a  method  of  careful  supervision  that  will  prevent  excesses. 

S3 


It  is  desirable  not  only  to  know  that  the  ungraded  classes  are 
discharging  a  most  useful  function,  but  to  be  able  to  demon- 
strate their  value  more  closely.  This  could  be  done  partially 
and  indirectly  by  examining  what  influence  the  establishment 
of  ungraded  classes  had  had  upon  the  progress  of  pupils  in  re- 
gular grades.  It  can  be  done  directly  by  tracing  the  progress  of 
pupils  in  the  ungraded  classes  and  comparing  it  with  their 
previous  progress.  Unfortunately  no  such  study  has  been  made, 
and  it  is  impossible  to  make  one  in  the  time  at  hand.  It  is  fair 
to  assume  they  are  a  valuable  aid;  the  opinions  of  principals 
and  teachers  strengthen  that  assumption.  The  reduction  in 
over-age  pupils  confirms  it.  (cf.  Table  18). 


TABLE  17:     SHOWING  THE  ENROLLMENT  OF  PUPILS  IN  UNGRADED  CLASSES 

ACCORDING   TO   DOMINANT   INDIVIDUAL   CHARACTERISTICS,   AS  RE- 
PORTED   BY    PRINCIPALS   AND    TEACHERS    FOR    THE    FOUR 
WEEKS  ENDING  MARCH  31 

Slow  and  backward 397 

"         not  over  age 281 

Over  age,  but  not  retarded 184 

Unable  to  speak  or  to  understand  English 313 

Physically  defective,  weak,  nervous,  etc 218 

Making  up  time,  and  very  bright 75 

Making  up  time  lost  through  illness,  late  entrance,  etc 19 

Mentally  defective 169 

Truants 5 

Incorrigible,  criminal,  disorderly 42 

Various  other  causes .  .  64 


Total 1767 

Note: — Some  returns  were  made  on  the  basis  of  enrollment  and  some 
on  the  basis  of  attendance. 

This  list,  except  partially  in  the  case  of  those  unable  to  under- 
stand or  to  speak  English,  does  not  represent  segregations  by 
classes.  As  a  rule,  classes  contain  from  2  to  9  of  the  different 
types  of  pupils  in  a  single  group. 

The  defect  in  the  system  is  the  same  defect  noted  in  treating 
of  special  schools,  and  in  more  marked  degree.  The  ungraded 
class  is  conceived,  primarily,  as  a  method  for  the  relief  of  the 
regular  classes;  the  purpose  of  the  ungraded  class  becomes 
negative,  not  for  itself  but  for  the  others. 

The  difficulty  cannot  be  solved  by  the  principal  or  teacher 
alone.  A  separate  teacher  cannot  be  selected  for  each  class  of 
pupils.  Considering  the  differences  in  character  of  pupils, 
and  notwithstanding  the  small  enrollment,  teaching  in  the 

54 


classes  is  very  difficult.  The  teachers  probably  do  all  that  one 
teacher  could  do, — they  depend  on  a  system  of  grouping  and 
individual  instruction  that  accomplishes  a  great  deal,  but  cannot 
accomplish  the  impossible. 

As  at  present  constituted,  however,  these  different  types  of 
pupils  should  not  be  gathered  in  a  single  room.  No  good  author- 
ity could  be  quoted  for  placing  together  mentally  defective 
pupils  and  backward  pupils. 

It  will  be  the  duty  of  the  supervising  authority  of  a  group  of 
schools  to  collate  information  such  as  is  contained  in  these 
tables,  and  to  regrade  pupils  in  neighboring  schools,  so  that 
ungraded  classes  can  be  organized  on  the  basis  of  those  par- 
ticular types  shown  of  pupils  who  can  most  wisely  be  assembled 
in  one  room. 

The  city  has  already  made  provision  for  truants  and  incor- 
rigibles,  and  the  ungraded  should  not  duplicate  the  work  of 
these  schools.  The  city  has  made  some  inadequate  provision 
for  mentally  defective  pupils.  If  deficient  pupils  now  in  un- 
graded classes  are  to  be  taught  properly,  some  provision  will 
have  to  be  made  for  them. 


//.   The  Over-Age  Pupil 

It  will  be  noted  that  ungraded  classes  make  provision  for 
over-age  pupils;  of  the  1767  pupils  reported,  22.5  per  cent  were 
over  age  and  backward  pupils,  and  10.4  per  cent  were  over  age 
pupils  who  had  not  been  retarded.  The  ungraded  class  is  well 
adapted,  under  the  best  conditions,  to  help  such  pupils.  Over 
age  is  a  relative  term.  As  the  term  is  used  in  Los  Angeles,  it 
means  that  pupils  who  graduate  at  14  years  of  age  or  more  are 
over  age,  the  pupil  being  over  age  at  any  grade  below  the  8th 
at  a  corresponding  year.  Thus  a  pupil  just  leaving  A-5  to  enter 
B-6,  who  was  11  or  more,  would  be  over  age>  and  less  than  10 
under  age.  This  is  called  the  "up  to  fourteen"  standard.  It 
is  really  not  important  whether  an  "up  to  fourteen"  or  an  "up 
to  fifteen"  standard  be  established,  if  the  standard  is  clearly 
understood. 

One  defect  of  these  tables  is  that  the  tables  are  made  from  data 
giving  the  year  only,  there  being  no  division  either  by  half  years 
or  half  grades.  This  method  gives  less  accurate  results.  All 
figures  in  Tables  18,  19,  20,  are  made  from  data  giving  age  in 
years  only,  and  without  more  exact  reference. 


55 


TABLE  18:     SHOWING   PERCENTAGE  OF  OVER- AGE  PUPILS  AS  OF  OCTOBER 
1914,  AND  MARCH,  1916,  FROM  DATA  SUPPLIED   BY  THE  CITY 
SUPERINTENDENT 


Percentage 
Under  age 

Percentage 
Grade  age 

Percentage 
Over  age 

Grade 

Oct.  30, 
1914 

March  31, 
1916 

Oct.  30, 
1914 

March  31, 
1916 

Oct.  30, 
1914 

March  31, 
1916 

First  
Second  
Third  
Fourth  
Fifth  
Sixth  
Seventh  .... 
Eighth  

9.0  * 
9.0 
9.8 
10.2 
10.8 
10.5 
17.5 
10.5 

9.0 
9.0 
13.0 
13.0 
12.0 
12.0 
14.0 
13.0 

57.4 
47.4 
40.7 
35.8 
32.7 
29.1 
24.0 
29.7 

60.0 
50.0 
43.0 
37.0 
36.0 
33.0 
32.0 
34.0 

33.6 
43.5 
49.4 
54.3 
56.4 
60.5 
58.3 
59.6 

31.0 
41.0 
44.0 
50.0 
52.0 
55.0 
53.0 
54.0 

Percentage 
for  all  grades 

9.8 

11.3 

35.4 

42.8 

55.8 

45.9 

riG-ii- 


//i 


T0 


/0) 


This  comparison  indicates  that  over-age  has  decreased  ma- 
terially in  Los  Angeles.  The  increase  in  the  number  of  un- 
graded classes  in  Los  Angeles  (69-84)  during  this  period  is  un- 
doubtedly one  cause  of  this  improvement. 

On  the  other  hand,  the  number  of  over-age  pupils  who  were 
not  promoted  the  last  term  is  more  than  half  of  those  of  the  full 
number  of  non-promoted  pupils  in  the  schools. 

56 


II I.     N on- Promotion;  Number  and  Percentage 

TABLE  19:     SHOWING  NUMBER  OF  NON-PROMOTIONS  AND  PERCENTAGE  OF 
NON-PROMOTIONS  IN  THE  ELEMENTARY  SCHOOLS  AT  THE  BEGINNING 
OF    THE    PRESENT    SEMESTER,    DISTRIBUTED    ACCORDING 
TO  "UNDER-AGE,"  "GRADE-AGE"  AND  "OVER-AGE"  PUPILS 


Grade 

Under  age 

Grade  age 

Over  age              Total 

Number 

Percent. 

Number 

Percent. 

Number 

Percent. 

1st  
2nd  
3rd  
4th  
5th  
6th  
7th  
8th  

13 
12 
22 
15 
8 
12 
10 
3 

01 
02 
04 
04 
02 
04 
07 
04 

687 
193 
221 
95 
93 
59 
25 
21 

60 
35 
35 
21 
23 
20 
18 
30 

439 
353 
387 
339 
300 
219 
102 
47 

39 
63 
61 
75 
75 
76 
75 
66 

1139 
558 
630 
449 
401 
290 
137 
71 

Totals.. 

95 

.0258 

1394 

.3795 

2186 

.5948 

3675 

IH  ^JJ£M£SiT/TR.y   SCHOOLS 


No  child  should  be  forced  beyond  his  ability  whether  over 
age  or  under.  On  the  other  hand,  a  course  of  study  should  be 
so  modified  for  over- age  pupils  that  they  may  be  able  to  learn 
*vhat  is  absolutely  essential  for  progress  in  as  short  a  time  as 
possible. 

57 


It  should  be  noted  that  of  the  number  of  pupils  who  were  not 
promoted  at  the  beg  nn'ng  of  the  present  semester,  52%  were 
less  than  a  year  over-age.  There  are  cities  which  use  a  dif- 
ferent test  from  that  of  Los  Angeles.  If  the  "up  to  fifteen"  stan- 
dard of  such  cities  were  employed,  the  number  of  non-promoted 
over-age  pupils  would  be  1043,  or  29%  of  the  total  of  non-pro- 
motions. 

A  more  detailed  analysis  has  been  prepared  by  the  Committee, 
and  is  presented  in  Table  20. 


58 


TABLE  20:     SHOWING  NUMBER  OF  BOYS  AND  GIRLS  NOT  PROMOTE     AT 
BEGINNING    OF   THE    LAST    SEMESTER    (FEBRUARY,    1916), 
ARRANGED  ACCORDING  TO  AGE 


5 
3 

6 

390 

297 

7 

8 

9 

10 

11 
'l 

12 

1 

13 
1 

1 
14 

'l 

15 

6 

1 

17 

and 

over 

^otal 

Und. 
Age 

Gr. 

Age 

Ov. 

Age 

Total 

1st: 
B 
G 

197 
125 

40 
46 

10 
6 

4 
6 

654 

485 

13 

687 

439 

1139 

T 

2nd: 
B 
G 

3 

587 

8 
4 

12 

322 

108 

85 

86 

103 
99 

16 

55 

39 

10 

17 
17 

34 

1 

1 

1 

1 

1 

7 
5 

4 
2 

6 
14 
14 

2 

2 

4 
5 
5 

1 

1 

— 

— 

305 
253 

12 

193 

353 

558 

T 

193 

202 

113 

108 

94 

12 

20 

18 

38 

3rd: 
B 
G 

9 
13 

22 

101 
113 

58 
58 

320 
310 

22 

221 

387 

630 

T 

221 

214 

116 

4th: 
B 
G 

5 
10 

48 
47 

62 

81 

60 
49 

22 
20 

14 
11 

8 
4 

12 

4 

o 

& 

1 

"l 

223 
226 

15 

95 

339 

449 

T 

15 

95 

143 

109 

42 

25 

6 

1 

1 

5th: 
B 
G 

"l 
1 

1 

6 

7 

52 
41 

52 
55 

63 
51 

21 
20 

17 
6 

7 
6 

213 

188 

2 

r 
f, 

1 

— 





T 



% 
G 

T 

7th: 
B 
G 

93 

107 

114 

41 

23 

13 

8 
12 

93 
59 

300 
219 

401 
290 
137 

Ill 

— 

1 
1 

6 

c 

11 
'  1 

36 
23 

59 

Q 

55 
36 

91 

13 
12 

34 
3< 

70 

2( 

IS 

3S 

2; 

IS 

12 
1< 

164 

126 

1 

22 
21 

1( 

( 

t 

77 
60 

10 

25 

102 



T 

— 

1 

9 

25 

2 

1 

43 

11 

1( 

41 

1( 
1( 

( 

8th: 
B 
G 

1- 

' 

5 

43 

28 

T 

— 

— 

3 

21 

21 

15 

I 

6 

3 

21 

47 

71 

Tot. 

3675 

95 

1394 

2186 

3675 

59 


IV.  Recommendations 

The  Committee  recommends: 

1 :     That  the  ungraded  classes  be  continued. 

2:     That  the  present  organizat  on  of  ungraded  classes  be 

examined  to  determine  the  need   of  reduction   and 

extension,    and   to   arrange  for   a   better   method   of 

select'on. 
3:     That  when  necessary,  principals  receive  more  definite 

suggestion  as  to  the  character  of  pupils  who  may  be 

segregated  in  ungraded  classes. 
4:     That  the  present  method  of  securing  over-age  statistics 

be  modified  so  that  returns  may  be  made  by  months 

and  years  of  birth. 

(B)     CLASSES    FOR    DEFECTIVES    OR    FEEBLE-MINDED    CHILDREN 

I.  Present  Provisions 

In  the  Twenty-third  Avenue  school  there  are  three  classes 
for  defectives  with  an  enrollment  of  39.  This  represents  all 
that  is  being  done  for  the  special  instruction  of  such  pupils  in 
the  whole  city. 

The  present  provisions  are  wofully  inadequate.  Because  of 
the  lack  of  a  school  census  there  is  no  way  of  telling  how  many 
such  children  there  now  are  in  the  city.  The  laboratory  at- 
tached to  the  Department  of  Health  reports  that  between  300 
and  400  pupils  have  been  pronounced  defective.  The  ungraded 
schools  report  169  such  pupils,  none  of  whom  should  be  enrolled 
in  such  classes.  There  are  18  others  in  the  special  schools  who 
should  never  have  been  placed  there.  How  many  more  there 
are  now  in  homes  receiving  no  attention  whatever,  there  is  no 
means  of  telling. 

If  the  city  of  Los  Angeles  is  to  conduct  a  school  system  for 
all  the  children  of  the  city,  a  great  deal  more  must  be  done.  The 
present  classes  in  Twenty-third  Avenue  are  excellent  in  them- 
selves, but  they  represent  a  beginning,  and  a  very  small  be- 
ginning, only. 

The  business  of  the  educational  administrators  is  to  present 
the  facts;  in  this  case  the  approximate  number  of  pupils  who 
should  be  cared  for,  with  the  reasons  for  such  necessity. 

Experimental  organizations  should  be  established.  These 
should  be  carefully  watched  and  a  statement  made  of  the  results. 
In  Los  Angeles  the  establishment  of  classes  for  defective  pupils 
as  an  experiment,  is  not  necessary.  The  experiment  has  al- 
ready been  tried  out  successfully.  Following  this  a  program 

60 


t  for  extension  should  be  prepared  to  include  a  statement  of  work 
to  be  undertaken  year  by  year  until  full  service  has  been  es- 
tablished. Such  a  statement  should  indicate  the  methods 
proposed.  Attached  to  it  there  should  be  an  estimate  of  what 
is  required,  tuition,  furniture,  supplies,  etc.,  with  the  cost,  the 
number  of  teachers,  the  equipment,  buildings,  rental,  etc. 
Under  such  circumstances  a  community  will  understand  exactly 
what  is  contemplated, — it  can  weigh  the  reasons  offered,  and 
accept  or  reject  the  method  of  procedure,  and  the  probable  cost. 
The  lack  of  such  an  organized  program  will  explain  the  very 
unsatisfactory  condition  of  many  educational  experiments. 
They  are  tolerated  at  the  beginning  because  they  are  interesting, 
p  cturesque,  or  impressive.  When  the  real  occasion  of  their 
existence  must  be  confronted,  i.  e.,  the  extension  of  the  service, 
such  matters  as  additional  cost  for  land,  equipment  and  tuition, 
are  looked  at  askance,  because  the  necessity  for  them  had  not 
been  anticipated.  Further  extension  is  discouraged.  There 
are  certain  things  which  a  good  educational  system  ought  to  do. 
These  should  be  clearly  set  forth.  American  cities  are  usually 
willing  to  pay,  and  pay  well,  for  educational  activities  in  whcih 
they  believe.  Under  such  circumstances  the  extension  of  neces- 
sary educational  activities  will  be  expected  as  a  normal  and 
proper  development. 

It  may  be  assumed, — and  only  an  assumption  is  possible, — 
that  there  are  from  400  to  500  feeble-minded  children  in  the 
Los  Angeles  schools  who  are  receiving  no  proper  training  and 
for  whom  no  institutional  or  school  care  is  now  provided. 

There  are  300  such  pupils  in  excess  of  those  now  being  pro- 
vided for,  who  can  now  be  found.  If  institutional  care  be 
included,  the  number  would  be  larger.  Unfortunately,  the 
schools  will  have  to  take  care  of  many  such  pupils  until  insti- 
tutional care  is  available. 

At  a  very  modest  estimate,  25  to  30  teachers  will  eventually 
be  required  to  care  for  defective  children.  They  cannot  all  be 
housed^  in  one  building.  It  is  absurd  to  talk  'of  caring  for  300 
pupils  in  one  place  to  accomodate  a  population  distributed  in  an 
area  of  400  square  miles,  when  the  children  must  travel  twice 
daily  the  distance  between  home  and  school. 

Within  the  year,  centers  for  experiments  should  be  established 
in  such  centers  of  population  as  further  investigation  may  prove 
desirable.  These  centers  may  be  housed  in  bungalows  suf- 
ficiently large  to  hold  4  teachers.  Subsequent  extension  must  be 
decided  by  examination  of  residental  districts  to  determine  the 
locality  most  convenient  for  the  greatest  number  of  defective 
pupils. 

61 


II.     The  Psychological  Laboratory 

Los  Angeles  maintains  a  well  equipped  laboratory  as  part  of 
the  work  of  the  Department  of  Health  and  Development.  To 
it  pupils  may  be  sent  for  examination,  not  only  to  determine 
mental  ability,  but  to  discover  pathological  conditions.  Such 
advice  is  given  as  may  be  necessary.  The  laboratory  is  un- 
evenly used;  apparently  its  facilities  are  unknown  to  many 
teachers  or  disregarded  by  them.  Others  employ  its  services 
frequently. 

A  psychological  laboratory  implies  the  services  of  a  competent 
psychologist.  Examination  of  children's  mentality  should  be 
made  by  a  clinical  psychologist  and  a  physician.  If  both  abil- 
ities are  possessed  by  a  single  individual,  this  does  not  destroy 
the  vital  distinction  between  the  two  functions.  Mental  pro- 
cesses and  physical  processes  are  reciprocal  in  their  influence, 
and  any  exclusive  interpretation  of  a  child's  mental  condition 
should  be  determined  by  examination  of  psychological  and 
physiological  condition. 

///.     Recommendations 

The  Committee  recommends: 

1 :     The  formulation  of  a  complete  program  for  dealing  with 

the  problem  of  dependent  children. 

The  establishment  of  three  or  four  centers  instead  of  one. 
The  extablishment  of  standards  of  training,  study,  and 

experience  for  teachers  of  these  classes. 
The  provision  for  periodical  report  on  the  progress  of 

work  performed  and  for  discussion  and  contributions 

by  persons  engaged  therein. 
Provisions  for  testing  the  mentality  of  children  by  one 

or  more  than  one  person,  which  shall  include  both  a 

psychological  and  a  medical  examination. 


(C)    CLASSES    FOR    THE    DEAF 

Eight  teachers  in  the  16th  Street  School  are  employed  in 
teaching  the  deaf.  In  Polytechnic  High  School  there  is  another. 
The  method  is  oral  and  communication  by  the  older  manual 
method  is  not  permitted.  It  may  prove  necessary  to  establish 
another  center  for  the  deaf,  but  this  should  not  be  undertaken 
until  a  sufficient  number  of  pupils  is  assured  to  make  proper 
grading  possible.  Single  isolated  classes  made  up  of  deaf  pupils 
who  differ  in  age,  intelligence,  and  school  grading,  do  not  offer 
promise  of  successful  educational  results. 

62 


(D)     SCHOOLS    FOR    CRIPPLED,     BLIND,     EPILEPTIC    AND 
OTHER    DEFECTIVES 

/.     Present  Provisions 

There  are  no  classes  for  anaemic  pupils.  The  extraordinary  cli- 
mate of  California  permits  much  more  open  air  teaching  than  is 
possible  in  less  fortunate  localities.  It  seems  strange  that  the 
architecture  of  many  of  the  buildings  is  such  as  might  be  chosen 
in  the  northern  and  eastern  part  of  the  country,  not  by  deliberate 
choice  but  through  necessity.  The  city  of  Los  Angeles  might 
well  consider  the  desirability  of  erecting  buildings  with  large 
windows  and  glass  doors  that  can  be  open  a  large  part  of  the 
year.  Such  a  row  of  buildings  around  a  playground,  bordered  by 
the  gardens  that  pupils  cultivate,  would  not  only  be  more  suit- 
able but  more  beautiful  than  square  brick  structures.  Fresh 
air  and  sunlight  in  southern  California  are  so  generous  y  pro- 
vided by  nature  that  nothing  should  be  done  to  prevent  children, 
anaemic  or  otherwise,  from  enjoying  them  to  the  full.  The 
building  policy  should  be  planned,  not  after  conceptions  that 
are  determined  by  atmospheric  conditions  elsewhere,  but  by 
those  that  exist  in  Los  Angeles.  Such  a  program  offers  a 
great  opportunity  for  the  ideal  housing  of  school  children. 

Los  Angeles  makes  no  provision  for  certain  other  types  of 
pupils  such  as  the  blind  and  crippled.  Arrangements  should  be 
made  for  a  system  of  transportation  of  crippled  children  in  the 
more  congested  parts  o^  the  city.  At  least  one  class  for  blind 
children  should  be  established. 

//.     Recommendations 

The  Committee  recommends: 

1:  That  until  a  census  be  made,  principals  be  directed  to 
obtain  through  pupils  the  names  and  residences  of 
crippled  children  who  are  not  receiving  any  instruc- 
tion. 

2:  That  centers  be  established  in  these  districts  when 
needed,  such  centers  to  be  class  rooms  selected  in  the 
first  floors  of  buildings  with  facilities  of  easy  egress. 

3:  That  for  such  crippled  children  as  are  unable  to  walk, 
a  bus  line  be  established  which  shall  call  at  the  re- 
spective homes  of  children  and  return  them  after  the 
school  sessions. 

4:  That  similar  inquiry  as  suggested  in  paragraph  1,  be 
made  concerning  blind  and  other  physically  handi- 
capped children  who  are  not  now  receiving  proper 
instruction,  so  that  instruction  may  be  given  in  the 
usual  school  branches  in  a  special  class,  by  a  teach- 
er properly  trained. 

63 


(E)    THE    EMPLOYMENT   OF    EXTRA    TEACHERS    TO 
TEACH    SPECIAL   SUBJECTS 

The  elementary  school  curriculum  has  been  expanding  steadily, 
and  that  expansion  has  become  especially  notable  within  recent 
years. 

Among  the  subjects  that  have  been  added  to  the  old  course 
of  study  of  the  3  R's,  are  woodwork,  cookery,  sewing,  music, 
drawing,  primary,  manual  arts,  gardening,  and  foreign  languages. 
In  the  schools  of  Los  Angeles  teachers  are  employed  to  taech 
special  subjects  in  some  classes.  These  are  in  addition  to  the 
usual  supervisors  for  such  special  subjects.  There  are  many 
classes,  however,  in  which  no  extra  teacher  is  employed. 

The  causes  wh'ch  have  tended  to  increase  greatly  the  number 
of  special  teachers  so  employed  have  been  the  inability,  real  or 
assumed,  of  regular  grade  teachers  to  do  the  work,  and  the  appar- 
ent failure  of  some  of  the  normal  schools  to  fit  their  graduates 
to  teach  such  subjects. 

The  questions  which  arise  in  connection  with  such  employ- 
ment are: 

ARE  SPECIALLY  EQUIPPED  TEACHERS  NECESSARY  FOR  INS- 
TRUCTION IN  THE  SPECIAL  SUBJECTS? 

IF  SO,   DOES  THE  NECESSITY  APPLY  TO   ALL  SPECIAL  SUBJECTS? 
IF  NECESSARY,  DOES  IT  FOLLOW  THAT  REGULAR  TEACHERS  MAY 
NOT    HAVE    OR    ATTAIN    THE    ABILITY    REQUIRED? 

IF  SPECIAL  TEACHERS,  AS  DISTINGUISHED  FROM  REGULAR 
GRADE  TEACHERS  ARE  NECESSARY;  WHAT  SHOULD  BE  THE  PRIN- 
CIPLE REGULATING  THEIR  ASSIGNMENT  AS  TO  GRADES  AND  NUM- 
BER? 

/.  Are  Specially  Equipped  Teachers  Necessary  for  such  Ins- 
truction? If  So,  Does  the  Necessity  Apply  to  All  Special  Sub- 
jects or  to  Some  Only? 

The  argument  for  the  employment  of  special  teachers  is 
simple  and  direct.  Other  things  being  equal,  the  better  a  teacher 
knows  her  subject,  the  more  competent  she  is  to  teach  it.  No 
one  can  question  the  soundness  of  the  argument  as  stated.  But 
are  all  other  things  equal? 

To  discuss  this  is  to  present  the  other  side  of  the  question. 
Is  the  object  in  the  education  of  children  to  give  technical  excel- 
lence, or  to  use  the  subject  as  a  means  of  training?  In  the 
adolescent  period,  the  pupil  should  begin  to  learn  that  he  must 
adapt  himself  to  world  requirements.  A  high  school  boy  or 
girl  has  special  teachers  to  enable  him  best  to  master  the  work 

64 


before  him,  whatever  the  subject  may  be.  Few  educators 
would  adopt  the  same  ideal  in  teaching  little  children.  The 
protest  of  many  teachers  against  a  departmental  system  is  not 
against  the  system  itself,  but  against  its  application  to  children 
of  primary  grades.  The  teacher  occupies  a  quasi-parental 
position,  and  it  is  the  unifying  influence  of  her  personality 
rather  than  the  influence  of  various  subjects  of  instruction  that 
many  consider  should  be  the  instrument  in  a  child's  development. 

There  is,  too,  another  argument  against  early  specialization. 
A  special  teacher  is  concerned  primarily  with  a  pupil's  progress 
in  her  own  subject.  Especially  does  this  tend  to  be  true  when 
her  only  occupation  is  the  teaching  of  that  subject.  A  grade 
teacher  is  or  should  be  interested  not  in  any  one  subject  but  in 
the  child  she  is  teaching.  When  so  many  additional  subjects 
are  being  added,  and  there  is  no  one  teacher  to  co-ordinate  and 
correlate  them,  the  school  child,  like  the  school  curriculum,  will 
tend  to  be  crowded. 

We  cannot  continue  indefinitely  to  increase  the  amount  of 
instruction  without  lengthening  the  time.  No  argument  for  a 
richer  curriculum  can  evade  the  fact  that  each  of  these  subjects 
when  specialized,  occupies  a  certain  amount  of  time,  and  that 
the  increased  time  is  not  provided  for  by  a  longer  day  in  Los 
Angeles,  though  this  may  come. 

If,  on  the  other  hand,  a  grade  teacher  is  employed,  these 
subjects  become  not  so  much  aims  of  accomplishments  in  them- 
selves as  instruments  for  better  instruction.  There  is  a  great 
deal  of  arithmetic  and  language  in  many  of  the  so-called  special 
subjects,  and  an  intelligent  grade  teacher  will  associate  and  not 
segregate  their  subjects,  as  the  special  teachers  are  apt  to  do. 

Finally,  there  is  a  very  practical  problem  involved.  Special 
teachers  have  a  definite  allowance  of  time  in  each  school.  Their 
subjects  enjoy  special  supervision  and  direction.  The  draw- 
ing hour,  the  music  period,  the  foreign  language  recitation;  these 
are  not  neglected  nor  forgotten.  There  is,  however,  no  special 
teacher  for  geography,  history,  arithmetic  and  spelling,  pen- 
manship, composition  and  reading.  If  the  program  is  over- 
crowded, and  only  those  who  have  had  no  actual  experience  in 
elementary  teaching  are  unaware  that  it  is  often  overcrowded, 
it  is  unusual  that  the  special  subjects  will  be  reduced  in  amount 
or  time. 

Somewhere  between  these  two  sets  of  arguments  the  truth 
lies.  Intelligent  educators  realize  that  the  so  called  special 
subjects  are  real  subjects,  and  that  they  appeal  to  the  interest  of 
the  children.  They  realize  too  that  specialization  should  not 
be  delayed  until  the  ninth  year  of  school,  and  that  there  are 

65 


certain  subjects  which  do  demand  a  degree  of  training  which 
cannot  be  expected,  except  in  very  exceptional  cases,  from  grade 
teachers. 

The  first  thing  to  establish,  therefore,  is  the  necessity  for 
specially  trained  teachers,  by  subjects  and  grades.  It  is  re- 
commended that  the  supervisors  set  forth  their  own  standards 
for  consideration  by  the  administrative  heads. 

II.  If  Teaching  by  Special  Teachers  be  Accepted  as  Necessary 
in  Certain  Subjects  and  in  Certain  Grades,  Should  Grade  Teach- 
ers be  Assigned  on  a  Full  Departmental  or  Part  Departmental  Sys- 
tem, or  Should  Special  Teachers,  Other  Than  Grade  Teachers, 
be  Employed? 

For  reasons  already  given,  it  is  desirable  that  regular  grade 
teachers  be  employed  for  pupils  in  elementary  grades,  provided 
they  be  competent.  There  can  be  no  question  whatever  that 
there  are  many  grade  teachers  who  would  teach  their  subjects 
well.  There  are  probably  few  who  could  not  teach  them  in  the 
primary  and  lower  grammar  grades.  There  are  many  persons 
now  employed  as  extra  teachers  of  special  subjects  who  hold  no 
certificate  save  the  ordinary  grade  certificate.  It  would  be 
absurd  to  say  that  the  same  person  is  competent  when  appointed 
as  a  special  teacher  of  a  subject,  but  not  competent  when  em- 
ployed as  a  grade  teacher  to  teach  the  same  subject. 

As  examples  of  this  condition,  it  may  be  mentioned  that  at 
least  13  of  the  present  staff  of  special  teachers  of  music  hold  the 
ordinary  grade  certificate  only,  and  5  hold  the  ordinary  grade 
certificate  in  drawing. 

Advanced  technical  training  in  most  of  these  subjects  is 
scarcely  to  be  asked  for  in  teaching  pupils  of  the  lower  elemen- 
tary grades.  In  fact,  many  of  the  classes  in  all  the  grades  are 
now  taught  by  regular  teachers,  in  subjects  like  music  and 
drawing,  and  the  committee  cannot  question  the  value  and 
quality  of  this  instruction.  Naturally,  if  a  special  teacher  is 
assigned  to  a  school,  and  she  must  be  employed,  she  will  be 
placed  in  all  the  classes  available  to  the  extent  of  the  time  she 
can  give. 

There  is,  too,  an  economic  side,  though  this  is  not  the  most 
important  one.  The  following  table  indicates  the  rate  of  ap- 
pointment of  extra  special  teachers  in  recent  years.  In  six 
years  the  number  of  special  teachers  has  increased  from  48  to 
262,  an  increase  of  over  445%. 

The  propriety  of  this  increase  in  cost  must  be  decided  on 
evidence  of  a  corresponding  increase  in  service  to  be  determined 
by  a  division  of  research  in  the  superintendent's  office  as  recom- 
mended in  this  report. 

66 


TABLE  21:     SHOWING   NUMBER   OF  TEACHERS   OF   SPECIAL  SUBJECTS   (NOT 
SUPERVISORS)  EMPLOYED  FOR  Six  SUCCESSIVE  YEARS 


Special  subjects 

1910-11 

1911-12 

1912-13 

1913-14 

1914-15 

1915-16 

Agriculture  and  Garden- 
ing.   
Batavia   work   (to   assist 
regular  grade  teachers 
in  the  inspection  of  in- 
dividuals)   

0 
0 

0 
1 

2 
4 

•2 
6 

15 
'     6 

25 
4 

Domestic  science  
Drawing  

18 
0 

23 

0 

41 
9 

54 
12 

68 
24 

78 
34 

Foreign  languages  

0 

0 

1 

1 

5 

5 

Manual  arts  

0 

0 

4 

6 

9 

8 

Music  
Sloyd  (shopwork)  

0 
30 

0 

27 

10 
31 

11 

'42 

37 

51 

49 
59 

Increase  percent,  on  num- 
ber of  special  teachers 
each  year  over  the  pre- 
ceding year 

Increase     per     cent,     on 
number  of  special  tea- 
chers  of   1915-16   over 
1910-11    . 

48 

51 

6% 

102 
100% 

134 

31% 

215 
60% 

262 

22% 

446% 

67 


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68 


///.     Special  Instruction  for  Individual  Pupils 

It  will  be  noted  that  one  provision  is  for  "Batavia."  As  the 
term  is  used  in  Los  Angeles  it  means  the  employment  of 
special  teachers  to  take  care  of  individual  pupils  while  the 
regular  teacher  is  in  charge  of  the  grade. 

One  of  the  principals  stated  that  there  are  two  arguments  in 
favor  of  the  employment  of  special  teachers  besides  the  one  of 
special  training.  Their  multiplication,  he  stated,  relieved  the 
regular  teachers  from  attendance  at  supervisors'  conferences; 
and,  in  addition,  they  relieved  class  room  teachers  who  could 
thus  give  individual  instruction  to  backward  children.  The 
first  argument  is  scarcely  tenable.  It  can  scarcely  be  termed 
beneficial  to  members  of  any  profession  to  be  "relieved"  from 
attendance  at  discussions  concerning  their  own  profession. 
The  second  reason  deserves  careful  attention.  No  one  believes 
that  children  are  identical.  Every  individual  has  his  own 
method  of  interpretation,  his  own  rate  of  progress.  If  this 
individuality  is  to  be  interpreted  in  corresponding  terms  of 
teaching,  a  teacher  might  well  be  demanded  for  every  child. 
No  school  administration  charged  with  the  care  of  children 
would  seriously  propose  such  an  orgainzation.  Somewhere  a 
limit  must  be  defined;  an  educational  limit  as  well  as  a  financial 
one  should  be  established. 

The  City  of  Los  Angeles  now  makes  most  liberal  provision  for 
the  individual  care  of  children.  Its  average  enrollment  is  not 
high;  it  maintains  special  classes  or  schools  for  truants  and 
delinquents;  it  has  84  ungraded  classes,  each  with  small  en- 
rollment, to  take  care  of  children  requiring  special  attention. 
The  teachers  of  the  first  and  second  year  in  every  elementary 
?hool  of  the  city  are  at  liberty  one  hour  a  day  to  give  special 
help,  and  of  the  third  year,half  an  hour, — a  total  time  for  special 
assignment  in  the  public  schools  of  Los  Angeles  of  477  hours  per 
day  of  teachers'  time. 

A  report  made  to  the  Board  of  Education  last  January  shows 
that  a  very  considerable  per  cent  of  the  total  time  of  regular 
class  teachers  is  not  used  by  them  for  the  instruction  of  the  full 
classes,  because  a  special  teacher  is  present. 

No  educator  will  protest  against  a  liberal  assignment  of 
teachers,  but  the  ratio  must  be  determined  by  careful  investi- 
gation through  a  research  bureau  such  as  has  been  recommended 
by  the  Committee.  Whether,  4n  addition  to  the  provisions 
already  set  forth,  additional  "Batavia"  teachers  ought  to  be 
employed,  is  a  matter  for  local  decision. 

It  is,  of  course,  possible  to  have  instruction  by  special  teachers 
without  incurring  the  cost  of  additional  teachers.  It  is  done  in 

69 


many  cities  of  the  country,  and  to  a  considerable  extent  in  the 
city  of  Los  Angeles.  It  is  possible  to  do  't  in  all  grades  or  in 
some  grades  for  almost  every  subject  by  the  adoption  of  a  de- 
partmental system  in  whole  or  part. 

A  full  departmental  system  assigns  to  one  of  a  group  of  teachers, 
one  or  more  subjects,  which  she  teaches  exclusively.  There  is 
no  question  as  to  the  success  of  the  method,  though  there  is 
some  question  as  to  the  grades  in  which  it  should  be  employed. 
There  is  general  agreement  that  it  can  be  wisely  employed  in  the 
seventh  and  eighth  grades  when  a  special  teacher  is  considered 
necessary.  There  is  some  question  as  to  its  adoption  in  the 
fifth  or  sixth  grades.  Opinions  pro  and  con  have  been  expressed 
by  principals  of  the  city  schools  here. 

A  part  departmental  system  permits  a  teacher  to  exchange 
with  one  or  two  others  on  the  same  subjects.  Thus  a  third  year 
teacher  will  instruct  the  pupils  of  a  third  and  fourth  year  class  in 
music,  and  the  fourth  year  teacher  will  exchange  in  some  sub- 
ject for  a  corresponding  time,  e.  g.,  spelling  or  word  study. 
This  method  is  now  frequently  employed  in  Los  Angeles. 

IV.  If  Special  Teachers,  Other  Than  Regular  Grade  Teachers 
Should  be  Employed,  What  is  the  Principle  Regulating  their 
Assignment  as  to  Grade  and  Number? 

Reference  has  been  made  to  the  abundant  provisions  for  the 
employment  of  special  teachers.  It  must  not  be  assumed  that 
all  schools  have  them,  or  even  that  all  principals  desire  them, 
for  that  is  not  the  case.  An  examination  of  conditions  now 
obtaining  shows  no  consistent  principle  of  assignment.  Probably 
the  most  consistent  assignments  would  be  made  in  such  subjects 
as  shopwork  and  cooking.  As  examples  of  apparently  dispro- 
portionate assignment,  it  may  be  mentioned  that  one  school 
with  an  enrollment  of  300,  and  with  9  regular  teachers  employed 
for  a  total  of  180  days  a  month,  has  a  special  teacher  of  music 
for  20  days,  or  over  11%  of  the  regular  teachers'  time.  Another 
school  with  411  enrollment,  employing  12  teachers,  who  are 
employed  for  240  days,  requires  a  special  teacher  of  the  same 
subject  for  10  days  or  only  4%%  of  the  regular  teachers'  time. 
Two  larger  schools  with  enrollment  approximating  850,  one 
employing  16  and  the  other  17  teachers,  do  not  employ  a  special 
teacher  in  the  subject  at  all.  There  is  no  apparent  reason  for 
these  discrepancies  except  that  some  principals  have  made  the 
first  demands,  and  the  supply  is  limited. 

For  a  special  teacher  of  drawing,  one  school  employing  15 
regular  teachers  has  a  special  teacher  of  drawing  20  days  a  month ; 
another  with  the  same  number  of  teachers  and  the  same  enroll- 
ment within  3  pupils,  has  a  teacher  of  drawing  for  12  days  a 

70 


month;  a  third,  with  the  same  number  of  teachers  and  the  same 
enrollment  within  12  pupils,  has  no  special  teacher  in  drawing 
whatever. 

Examples  could  be  multiplied.  There  are  4  special  teachers 
(not  regular  grade  teachers)  in  physical  training  only;  there  is 
a  special  teacher  for  telling  stories  who  visits  at  seven  schools 
only.  There  are  teachers  of  foreign  languages  in  eight  schools 
only,  and  only  a  part  of  these  pupils  take  the  language. 

These  scattering  assignments  might  be  considered  as  experi- 
ments to  be  tried  out  before  embarking  on  a  policy.  There  does 
not,  however,  appear  to  be  any  report  of  a  study  of  the  progress 
of  these  experiments.  The  assignment  of  special  teachers 
should  be  based  on  a  specific  policy.  Such  a  policy  should  be 
susceptible  of  definite  statement  on  the  basis  of  the  value  of  the 
subject,  the  time  desirable  for  assignment  and  the  grades  to 
which  teachers  should  be  assigned.  The  policy  should  not  be 
such  as  to  rob  the  administration  of  discretion  in  making  ex- 
ceptions, whether  for  experiments  or  for  other  special  reasons, 
but  these  should  be  matters  of  record. 

V.     Recommendations 

The  Committee  recommends: 

(1)  That  a  definite  policy  be  established  respecting  the 

employment  of  teachers  for  instruction  in  special 
subjects. 

(2)  That  a  definite  policy  be  established  concerning  the 

subjects  in  which  special  teaching  should  be  employ- 
ed including  limitation  by  grades. 

(3)  That  a  definite  policy  be  established  concerning  the 

employment  of  extra  special  teachers,  determining 
the  particular  subjects  and  grades  in  which  such 
teachers  should  be  employed,  and  the  conditions 
under  which  such  employment  is  regulated. 

(4)  That   a   statement  be  prepared   showing   the   cost   of 

carrying  out  such  a  policy  as  described  in  3,  if 
equally  applied  to  all  the  children  in  the  schools. 

(5)  That  provision  be  made  for  discretion  in  the  applica- 

tions of  policies  in  3,  such  exceptions  to  be  made  a 

matter  of  record. 

In  conclusion,  the  Committee  also  recommends  that,  if  any 
modifications  be  made  in  the  present  methods  of  appointing  or 
assigning  teachers,  the  changes  made  in  organization  should  be 
gradual.  If,  for  example,  it  were  concluded  to  place  upon  re- 
gular grade  teachers  full  responsibility  for  instruction  in  certain 
special  subjects  in  selected  grades,  it  would  be  wise  to  retain 
for  a  period  a  number  of  special  teachers  to  instruct  and  guide 

71 


the  regular  teachers.  When  the  progress  in  such  instruction 
has  been  satisfactorily  arranged,  special  teachers  could  then  be 
assigned  to  regular  grades. 


3.     THE  ELEMENTARY  COURSE  OF  STUDY 

(A)    UNDERLYING    PRINCIPLES 

A  course  of  study  is  a  statement  of  the  subjects  or  occupa- 
tions which  are  included  in  the  scope  of  instruction  arranged 
according  to  some  principle  of  sequence  corresponding  to  the 
progressive  development  of  pupils,  as  that  may  be  assumed. 

In  form  it  may  be  a  brief  outline  or  a  detailed  syllabus.  In 
purpose  it  may  be  directive,  so  that  to  the  most  meticu  ous 
details  each  teacher  will  be  required  to  follow  it;  or  it  may  be  so 
general  as  to  be  suggestive  only, — even,  to  be  extreme,  that  each 
teacher  may  reject,  accept,  modify,  or  add  to  all  of  it  or  any 
part  of  it. 

The  purpose  of  the  course  usually  reflects  the  attitude  of  the 
school  administration.  If  either  extreme  must  be  selected,  it 
is  conceivably  better,  for  the  education  of  children,  that  the 
teacher  should  have  unregulated  freedom  than  that  she  should 
suffer  from  a  rigid  minute  control. 

In  the  practical  world  of  teaching,  when  the  oral  or  written 
expression  of  ideals  must  be  supplemented  by  the  performance  of 
duty,  there  is  little  room  for  indulgence  in  extreme  views.  A 
course  of  study  should  be  definite.  Those  who  work — and 
teachers  are  no  exception — should  have  some  conception  of  what 
they  are  to  do.  Inexperienced  teachers,  or  unsuccessful  ones, 
need  help  of  a  very  definite  character. 

Whatever  its  merits,  no  course  of  study  should  permit  a 
teacher,  without  regard  to  differences  in,  age,  experience,  training, 
or  natural  ability,  to  indulge  in  any  chance  sort  of  vagary  of 
personal  interpretation  or  in  wholesale  omission.  The  adop- 
tion of  such  a  principle,  without  cons  deration  of  the  individuals 
to  whom  it  applies,  is  a  type  of  freedom  much  akin  to  chaos. 
"Freedom"  of  this  kind  may  not  preserve  a  chi  d's  individuality; 
it  may  sacrifice  it.  Every  teacher,  however,  should  be  free  to 
apply  a  test  of  reason  when  introducing  the  subject  of  instruct- 
ion. It  is  a  fact  that  there  are  courses  of  study  which 
contain  material  of  almost  no  value  unless  it  is  explained  by 
some  such  vague  reasons  as  that  "it  trains  the  mind".  When  a 
teacher  inquires  into  the  reason  of  teaching,  then  she  will  in- 
terpret intelligently,  not  casually  or  capriciously.  She  will 
question,  too,  some  of  the  useless  additions  that  have  been  made 
in  modern  courses  of  study,  whether  they  represent  the  passing 

72 


enthusiasm  of  some  period  of  hysteria,  the  desire  to  imitate  what 
some  other  community  is  doing,  or  the  pet  theory  of  some  in- 
dividual. 

A  teacher  who  applies  the  test  of  common  sense,  will  not 
teach  outworn  methods  of  business  arithmetic  that  business  no 
longer  employs,  nor  will  she  indulge  in  attempts  at  literary 
interpretation  that  no  child  can  appreciate. 

But  it  is  not  only  the  teacher  alone  who  should  apply  the  test 
of  reason;  principals,  superintendents,  and  citizens  generally, 
might  well  apply  it  when  examining  a  course  of  study. 

One  thing  must  always  be  remembered, — a  course  of  study 
is  a  help  and  guide  to  teachers,  not  a  means  of  preventing  the 
advancement  of  pupils.  There  are  reasons  why  a  child  should 
not  be  promoted,  but  they  are  not  to  be  found  in  the  details 
of  a  course  of  study. 

The  disposition  in  the  past  to  use  the  course  of  study  as  the  sole 
means  of  determining  a  child's  advancement  provoked  a  natural 
and  proper  reaction.  A  child's  progress  can  be  more  fittingly 
determined  by  his  aptitude  and  abilities  to  continue  the  work 
of  the  future  than  by  the  rigid  tests  as  to  his  competency  in 
"completing  the  grades." 

In  wThat  sense  should  a  course  of  study  be  definite?  When  is 
detail  in  a  course  of  study  undesirable? 

There  are  some  subjects  which  must  be  learned.  The  place 
for  them  should  be  definitely  fixed  so  that  the  teacher  may  know 
clearly  her  own  respons  bility  in  teaching  them.  No  one  dis- 
putes that  the  mastery  of  certain  forms  of  knowledge  is  neces- 
sary. We  may  not  think  some  of  these  forms  particularly 
valuable  or  necessary,  but  society  has  made  its  demands  for 
them  and  the  schools  must  respond  to  these  demands.  Whether 
it  be  the  multiplication  table,  the  name  of  the  capital  of  Germany, 
or  the  method  of  computing  simple  interest,  these  things  are 
definite  and  precise,  and  not  to  be  half  learned  or  indefinitely 
learned,  if  learned  at  all.  Whatever  the  method,  and  there 
should  be  abundant  freedom  here,  no  discussion  of  the  child's 
individuality  or  tendency,  or  potential  capacity,  can  evade  the 
necessity  of  providing  for  such  instruction.  There  are  not  a 
few  teachers  who  have  been  so  impressed  by  the  psychology  of 
interest  and  association,  that  they  have  neglected  to  provide  a 
place  for  drill.  Many  fundamental  things  of  life  will  not  be 
learned  by  a  drill  of  abstract  language  and  number  symbols; 
but  there  are  symbols  which  must  be  mastered.  It  is  economy 
to  state  in  a  course  of  study  what  these  things  are.  Under  such 
conditions  a  teacher  is  free  to  give  a  maximum  time  to  the  finer 
and  deeper  aspects  of  her  work.  Nothing  could  be  more  un- 

73 


fortunate  than  that  a  course  of  study  should  be  a  collection  of 
set  forms  of  knowledge,  such  as  a  list  of  dates,  of  names,  of  facts. 
That  is  why  a  subsidiary  but  definite  place  should  be  estab- 
lished for  them. 

On  the  other  hand,  the  cultural  and  manual  courses  should 
be  really  suggestive.  What  is  needed  here  is  not  a  mastery  of 
formulae,  but  rather  the  development  of  taste  or  skill;  here  the 
course  may  be  definite  in  setting  forth  the  purposes  of  instruc- 
tion, in  offering  i  lustrative  examples,  and  in  suggesting  biblio- 
graphies. 

The  course  of  study  of  Los  Angeles  has  many  excellent  features. 
It  has  now  been  in  operation  for  eight  months,  and  all  those  of 
whom  inquiry  has  been  made  have  expressed  a  decided  pre- 
ference for  it  over  the  old  course  of  five  years  before. 

Such  criticisms  as  may  be  offered  will  be  given  in  discussing 
the  various  subjects.  Of  the  course  generally,  it  may  be  stated 
that  some  of  the  introductions  to  the  subject  are  excellent; 
that  the  suggestions  for  method  are  good,  though  often  lacking 
in  helpful  illustrations;  and  that  lists  of  reference  books  are 
unusually  complete.  The  course  does  not  err  by  over-insistence 
on  detail. 

(b)       ARITHMETIC 

The  lower  grades  adopt  the  Grube  method,  dne  that  for  a 
time  had  an  extensive  vogue  in  the  United  States.  The  original 
arrangement  for  studying  each  number  in  sequence  "intensively" 
has  now  been  generally  abandoned.  A  more  modern  arrange- 
ment would  be  suggested  if  the  course  of  study  in  twenty  of  the 
largest  American  cities  were  compared  and  consulted. 

The  upper  grades  from  A-3  on  concentrate  attention  on  a 
single  arithmetical  topic.  This  treatment  is  superior  to  the 
spiral  method,  which  attempts  to  repeat  the  various  arithmetical 
topics  through  each  grade,  and  which,  in  seeking  to  control 
many  things,  masters  none.  Nevertheless,  review  is  necessary, 
and  directions  of  such  general  character  as  "Thorough  and  con- 
stant review  of  previous  work"  are  too  general.  It  is  possible 
to  continue  the  method  of  concentration,  and  also  to  provide 
for  review  by  suggestion  much  more  definite  than  mere  general 
direction. 

It  is  assumed  that  the  references  to  text  book  pages  give  a 
more  concise  suggestion  than  such  spacious  titles  as  "Addition, 
subtraction,  multiplication,  and  division  of  decimals."  In  the 
subject  of  arithmetic,  limitation  to  text  book  pages  is  too  narrow; 
dependence  on  general  topics  too  indefinite.  Pupils  must  do 
more  than  follow  selected  lists  of  pages.  On  the  other  hand, 

74 


some  statement  indicating  the  scope  of  such  operations  as  deci- 
mals or  fractions  should  be  made :  an  ambitious  teacher  may  try 
to  exhaust  the  subject  and  introduce  topics  that  would  puzzle 
high  school  children.  Definite  suggestion  need  not  forbid  a 
teacher  to  exercise  discretion  intelligently. 

The  course  is  to  be  commended  for  its  omission  of  such  ancient, 
useless,  or  inappropriate  material  as  true  discount,  equation  of 
payments,  involved  cases  of  mensuration,  etc. 

(c)       GEOGRAPHY 

The  distribution  of  topics  by  grades,  and  by  number  of  weeks 
for  each  topic  in  the  Los  Angeles  course,  is  presented  in  the 
following  statement: 


B-4 

AA 

B-5 

A-5 

B-Q 

A-6 

B-7 

A-7 

B-8 

.4-8 

Total 

The  globe  and  the 
zones  
Food  and  clothing 
California  ...    . 

20 

10 
10 

•• 

?6 

20  wk 
10  " 
30  " 

United  States  } 
Canada  J 

Mexico  1 
Central  America  .  .  > 
South  America.  .  .J 

Europe                    1 

20 

20 

- 

20 

20 

40  " 

40  " 

Australia                 J 

•• 

•• 

20 

20  " 

Asia  } 
Africa  / 

Physical   and    as- 
tronomical geo- 
craDhv 

•• 

•• 

•• 

•- 

20 

•• 

^0 

20  " 
20  " 

Canada  is   included    in  the   20— week    B — 7   grade    with    Mexico    and    Central    and    South 
Amarira,  and  in  the  A— 7  grade  with  the  United  States- 

An  examination  of  the  table  indicates  that  the  work  of  each 
grade  centers  around  a  continent  or  nation.     When  preceded  by 
a  general  discussion  of  the  earth,  and  by  a  more  detailed  study  of  * 
the  learner's  own  locality,  as  is  done  in  the  Los  Angeles  course, 
the  method  is  a  sound  one. 

An  elementary  pupil  before  graduation  should  make  some 
study  of  the  great  commercial  and  industrial  countries  and  the 
trade  routes,  with  the  United  States  as  a  center.  An  elementary 
understanding  of  these  is  necessary,  if  the  pupil  is  to  know  his 
own  country,  and  the  interdependence  between  it  and  the  other 

75 


nations  of  the  world.  Such  a  course,  which  should  include  a 
study  of  the  exports  and  imports  across  the  two  oceans  and  with 
the  countries  to  the  south,  though  it  involves  a  review,  is  a  new 
treatment  with  one  center  of  interest.  It  might  well  displace 
the  isolated  study  of  elementary  facts  of  physiography,  meteor- 
ology, astronomy,  which  now  constitute  the  course  for  the  B-8 
grade.  Certainly  if  the  pupil  is  not  already  familiar  with  so 
much  of  this  information  as  is  applicable  to  his  geographical 
studies  in  the  preceding  grades,  he  can  scarcely  appreciate  what 
has  been  taught  him  before  the  eighth  year.  If  he  does  under- 
stand them  sufficiently,  a  separate  treatment  of  these  somewhat 
abstract  subjects  might  well  give  place  to  a  study  that  is  more 
interesting,  more  significant,  and  far  more  useful. 

The  time  schedule  of  the  course  shows  that  Mexico,  Central 
America,  and  South  America  receive  as  much  attention  as  the 
United  States,  and  that  Europe  receives  less  than  half  the  time. 
The  proximity  of  Mexico,  and  the  future  promise  of  extended 
trade  with  the  southern  republics,  will  warrant  more  time  in  the 
study  of  their  geography  than  has  heretofore  been  given  in 
American  schools.  Nevertheless,  for  a  long  time  to  come  the 
large  interests  of  our  country,  social  and  commercial,  will  be 
with  the  countries  of  Europe.  More  time  should  be  permitted 
to  a  study  of  Europe. 

The  course  states  that  in  Geography  "the  same  fundamental 
facts  should  be  taught  in  the  same  grades  throughout  the  city  at 
the  same  time,  so  that  a  transferred  pupil  may  not  feel  that  he 
has  no  point  of  contact  with  the  school  to  which  he  is  transferred". 
Presumably,  "at  the  time"  means  "in  the  same  grade".  If 
this  statement  is  to  be  used  as  a  guide,  there  is  nothing  in  the 
course  to  indicate  either  what  these  fundamental  facts  are  or 
where  they  should  be  studied.  Certainly  it  is  not  to  be  sup- 
posed that  a  B-5  and  A-8  pupil  would  approach  the  study  of 
their  respective  topics  in  the  same  way. 

The  course  has  many  excellent  suggestions  for  method.  These 
would  have  been  more  useful  had  some  illustrative  examples 
been  included.  Geography  cannot  be  well  taught  unless  with  a 
background  of  technical  knowledge  not  usually  possessed  by  the 
normal  graduate.  Abundant  suggestion  and  many  illustrative 
examples  should  always  be  included  in  preparing  a  course  of 
study  on  this  subject.  It  is  also  suggested,  so  far  as  it  may  be 
appropriate  to  the  grade,  that  reference  to  current  events,  with 
significant  geographical  reference,  be  included  in  the  course  in 
geography  as  well  as  in  history. 


76 


(d)       HISTORY 

The  modern  school  course  in  history  is  no  longer  a  compilation 
of  facts,  arranged  in  severe  chronological  order,  with  an  emphasis 
on  purely  military  achievements.  The  Los  Angeles  course  is 
thoroughly  modern  in  arrangement  and  treatment. 

The  first  four  years  are  divided  into  three  captions, — history 
topics;  social  life;  holidays,  and  national  heroes.  The  history 
topics  begin  with  the  stories  of  primitive  man,  of  the  ancient 
and  medieval  world;  and,  in  the  latter  half  of  the  fifth  year,  of 
early  California  and  of  Los  Angeles.  The  social  life  begins  with 
conversations  covering  the  home  circle,  and  provisions  for  food, 
clothing  and  shelter,  and  includes  discussions  of  municipal 
business  and  activities,  an  understanding  of  the  activities  and 
values  of  the  departments  of  police,  health,  street  cleaning, 
parks,  schools  and  public  works,  as  well  as  a  study  of  large  build- 
ings, and  the  methods  of  transportation.  "Holidays  and  na- 
tional heroes"  represents  a  selection  of  anniversaries  and  of 
stories  of  eminent  men,  selected  because  the  incidents  or  events 
are  interesting,  vivid  and  inspiring.  Chronology  plays  no 
necessary  part. 

The  study  of  civic  activities  provided  for  the  second  year, — 
police,  fire,  and  street  protection, — should  be  repeated  and 
emphasized.  In  New  York  the  pupils  of  the  fourth  year  took 
up  these  subjects  after  the  teachers  had  been  supplied  with 
special  information  furnished  in  collaboration  with  the  depart- 
ments in  charge  of  these  activities.  Within  a  year  after  the 
number  of  fires  in  that  city  was  considerably  reduced.  Ap- 
parently the  decrease  was  the  partial  result  of  instructions  given 
the  children,  who  averaged  from  9  to  12  years  of  age. 

The  fifth  and  sixth  years  of  the  Los  Angeles  schools  are  divided 
into  two  courses, — history  topics  and  social  life  in  the  fifth  year, 
and  great  names  and  nations  and  industrial  life  in  the  sixth. 
History  is  a  subject  which  should  permit  a  very  wide  discretion, 
'especially  for  pupils  of  the  primary  and  lower  grammar  grades. 
The  material  offered  in  the  fifth  and  sixth  year  is  abundant,  yet 
sufficiently  definite  as  to  be  really  suggestive. 

As  full  freedom  is  permitted  the  teacher  in  the  selection  of 
topics,  the  course,  notwithstanding  its  length,  is  not  excessive. 

The  A-6  course  as  written  may  prove  misleading.  The  head- 
ings of  the  9  topics  include  some  which  might  well  test  the 
knowledge  of  a  graduate  student  in  a  University.  Some  of 
these  topics,  if  instruction  is  really  attempted,  will  result  in 
little  more  than  oral  repetit:on.  Such  are:  the  love  of  liberty 
"inherent  in  the  Anglo  Saxon  race,"  or  a  study  of  religious 
movements  (Catholicism  and  the  Reformation),  or  the  work  of 
Justinian  in  the  development  of  law. 

77 


A  wise  teacher,  who  knows  history  well  and  children  better 
can  make  judicious  use  of  this  material;  it  is  also  susceptible  of 
misuse  and  misunderstanding.  The  supervisory  staff  should 
check  the  work  actually  being  done. 

The  seventh  and  eighth  years  follow  the  chronological  order, 
but  not  as  a  string  of  events  connected  by  dates.  The  arrange- 
ment in  these  years  is  an  excellent  example  of  definite  guidance 
without  vexat  ous  prescription.  As  much  cannot  be  sa'd  for  the 
civics  as  the  course  is  heavy.  Thus,  in  the  A-7  the  subject  as 
given  is  *  The  Constitution  of  the  United  States."  This  needs 
elaboration. 

,A  careful  examination  of  this  course  shows  an  appreciation 
of  the  later  conceptions  of  the  subject  and  the  method  of  teach- 
ing it  in  elementary  schools.  When  necessary,  the  course  should 
be  so  worded  that  attempts  will  not  be  made  to  require  im- 
mature children  to  enter  into  experiences  and  conceptions  that 
only  older  and  more  instructed  persons  can  appreciate. 

(e)       LANGUAGE 

The  course  in  language,  reading  and  phonetics,  in  the  opinion 
of  the  committee,  is  a  good  one.  The  provisions  for  definite 
statement  where  definitions  are  necessary,  as  in  grammar,  and 
for  wide  direction  and  general  suggestion  where  these  are  desir- 
able, shows  a  sense  of  appropriateness  and  balance  in  preparing 
a  course  of  study. 

No  course  of  study  in  English  will  receive  unanimous  agree- 
ment in  its  details.  In  learning  to  read,  for  example,  there  are 
many  who  recommend  some  one  definite  reading  system,  whether 
purely  phonetic  or  not,  for  children  of  the  first  two  years.  Even 
the  best  courses  of  study  are  not  considered  by  many  sufficiently 
helpful  unless  the  text  employed  is  based  on  a  method  organized 
even  to  details.  Some  Los  Angeles  principals  use  such  methods. 
Whether  they  are  necessary  or  not,  must  ultimately  be  deter-1 
mined  by  a  comparison  of  conditions  in  schools  that  use  them 
and  schools  that  do  not, — i.  e.,  schools  that  depend  only  on  the 
teacher's  interpretation  of  the  course  of  study,  aided  by  primers 
or  reading  books  that  represent  no  particular  system  of  organi- 
zation. Such  comparisons  could  be  made  by  a  bureau  of  re- 
search. 

As  a  whole,  the  fundamental  requirements  of  English  instruc- 
tion are  provided  for.  .  Thought  is  to  precede  form.  Oral  ex- 
pression is  to  be  an  instrument  as  effective  as  written  language. 
Literature  is  recognized  in  the  content,  whether  in  the  form  of 
stories  to  be  heard,  pieces  to  be  memorized,  or  selections  to  be 
read  and  discussed.  But  literature  is  not  to  be  the  exclusive 

78 


material  of  instruction.  Children  must  learn  to  read  for  in- 
formation— "to  get  the  thought."  American  courses  of  study 
in  English  generally  are  less  narrowly  conceived  than  formerly; 
the  Los  Angeles  course  in  English  is  an  example  of  the  modern 
tendency. 

In  respect  to  the  eliminations  there  will  be  obviously  dif- 
ferences of  opinion.  For  example,  the  exclusion  of  the  relative 
pronoun  from  the  course  in  grammar  might  be  challenged. 

Again  the  treatment  of  spelling  (and  the  Los  Angeles  course 
on  this  subject  is  better  than  many),  should  not  be  dependent 
on  selection  of  words  from  a  speller.  The  course  of  study  very 
truly  states  that  there  is  need  to  know  only  the  spelling  of  such 
words  as  the  children  are  capable  of  employing  intelligently  in 
a  context.  Yet  progress  in  spelling  need  not  be  the  uncertain 
thing  it  now  is  in  elementary  schools.  Such  lists  as  those  of 
Ayers  and  Jones  contain  words  that  when  properly  graded  are 
already  understood  by  almost  every  pupil.  Such  words  might 
well  make  up  a  spelling  list.  A  course  of  study  so  excellent  in 
many  respects  should  provide  for  a  definite  type  of  achievement 
in  a  subject  where  definiteness  and  precision  are  essential. 


(f)       PENMANSHIP 

If  it  be  assumed  that  the  method  used  in  the  schools  (the 
Zaner  method)  is  satisfactory  in  operation;  the  course  of  study 
contains  all  that  is  required,  as  a  separate  manual  of  direct:ons 
is  f  urn' shed  with  it.  Incidentally  it  may  be  stated  that  the 
success  of  methods  of  this  kind  depend  largely,  not  merely  on  the 
teacher's  knowledge  and  study,  but  on  her  own  actual  skill.  No 
reference  is  made  in  the  course  to  either  of  the  standard  scores 
for  measuring  the  results  of  handwriting  ( Ay res-Thorndike) . 


(g)       FOREIGN    LANGUAGES 

There  are  5  teachers  of  foreign  languages  employed  in  8  ele- 
mentary schools.  Presumably,  this  is  an  experiment,  and  its 
operation  should  be  carefully  observed.  Even  in  the  8  schools 
where  it  is  taught,  not  all  the  pupils  of  a  grade  take  it,  nor  is 
the  language  taught  necessarily  determined  by  the  wishes  of 
pupils  or  parents  when  it  is  once  assigned. 

It  would  be  well  if  a  report  were  prepared  on  this  experiment, 
noting  the  results  of  instruction,  with  the  plans  for  future  ex- 
tension and  the  probable  cost  of  such  extension.  If  the 
experiment  has  been  in  existence  long  enough  to  render  an  in- 
telligent judgment,  this  is  a  proper  time  to  make  such  a  report. 

79 


The  other  subjects  in  the  course  of  study  are  Music,  Drawing, 
Home  Economics,  Manual  Arts  and  Manual  Work,  Nature 
Study  and  Agriculture.  Not  "subjects"  in  the  same  sense  are 
Physical  Training  and  Ethics,  although  these  are  included. 

There  are  no  definite  standards  for  courses  in  these  special 
subjects.  All  of  them  (with  the  possible  exception  of  the  techni- 
cal aspects  of  music),  should  permit  of  discretion  in  choice  of 
subject;  all  of  them  are  guided  by  supervisors  especially  qualified 
to  suggest  class  and  shop  procedure  and  to  confer  with  the  teach- 
ing staff.  At  the  present  time  there  is  in  addition  an  imposing 
staff  of  special  teachers. 

The  committee  believes  that  all  of  these  special  subjects 
should  be  included  in  any  provision  for  elementary  instruction, 
and  for  the  following  reasons: 

(h)     MUSIC 

It  is  almost  a  mistake  to  call  this  a  special  subject,  as  it  has 
become  an  integral  part  of  a  course  of  study  in  all  cities.  It 
seems  Unnecessary  to  discuss  the  place  of  music  in  any  scheme 
of  education  that  contemplates  anything  more  than  a  purely 
utilitarian  program  of  instruction. 

(i)     DRAWING 

The  aim  of  a  course  in  drawing  is  not,  as  has  been  mistakenly 
stated,  "to  make  artists"  although  instruction  in  drawing  does 
reveal  potential  artistic  ability.  Drawing  is  a  form  of  expres- 
sion, as  is  writing;  it  is  a  means  of  interpreting  life  in  terms  of 
form,  color  and  rhythm,  and  of  expression  through  these  forms. 
No  one  need  be  an  artist  to  appreciate  what  is  beautiful  in  the 
graphic  or  the  plastic  arts,  but  the  expression  gained  through 
drawing  develops  such  an  appreciation.  Furthermore,  drawing 
is  a  distinct  type  of  manual  training  just  as  is  penmanship,  paper 
cutting  or  carpentry.  To  exclude  drawing  from  instruction 
would  be  to  deny  to  children  one  of  the  most  obvious  methods 
of  exercising  their  powers  of  selection  and  invention. 

(j)   MANUAL  ARTS  AND  MANUAL  WORK 

Occupations  like  those  of  the  shop  are  modes  of  expression  of 
a  child's  life.  Subjects  like  arithmetic,  or  written  composition, 
or  formal  spelling  represent  adult  experience,  developed  through 
centuries  of  trial;  they  are  placed  in  the  elementary  school  as 
matters  of  necessity.  Instruction  in  them  involves  vexatious 
problems  of  arrangement  and  method.  Working  with  the  hands, 
whether  in  drawing,  sewing  or  sloyd,  is  a  natural  expression  of  a 
child's  interest.  It  may  be,  and  probably  is,  true  that  these  oc- 
cupations are  too  often  isolated  parts  of  the  pupil's  school  ex- 


ertions,  rather  than  modes  of  his  own  natural  desire  for  activity. 
When  the  fault  exists,  it  is  a  fault  of  method,  not  of  the  subject. 
There  can  be  no  doubt  that  manual  occupations  should  form 
part  of  a  child's  school  experiences  if  he  is  to  understand  his  own 
world  and  adjust  himself  to  it,  not  only  as  a  wage  earner,  but  as  an 
intelligent  partaker  in  its  civic  and  social  life. 


(k)       HOME    ECONOMIC   ARTS 

If  the  value  of  a  school  course  is  determined  in  part  by  its 
usefulness,  then  girls  need  training  in  the  home  economic  arts 
more  than  they  need  much  of  the  arithmetic  which  is  taught 
them.  Whatever  the  vocational  future  of  girls  may  be  in  the 
fields  of  business  or  of  the  professions,  there  is  one  profession — 
perhaps  the  finest, — which  it  may  confidently  be  affirmed  practi- 
cally all  will  enter, — the  keeping  of  a  home.  It  is  possible  to 
make  an  elementary  course  of  study  which  has  too  little  in  it 
of  home  accounts,  cooking,  dressmaking  and  home  hygiene; 
too  much  of  an  attempt  to  teach  chemistry,  costume  design  and 
mural  decoration.  A  course  in  Home  Economics  should  be  a 
part  of  the  course  of  study.  Whether  cooking  need  be  begun 
in  the  6th  year  or  even  earlier,  is  a  matter  concerning  which  there 
is  no  data  for  judgment.  It  is  a  matter  of  opinion. 


(1)       NATURE   STUDY 

This  subject  provides  for  an  acquaintance  with  the  plant  and 
animal  world,  not  as  abstractions  of  a  text  book  of  zoology  or 
botany,  but  in  terms  of  experience. 

The  Los  Angeles  course  is  prepared  and  supervised  by  a  small 
staff.  The  lack  of  data  renders  it  impossible  to  make  any  state- 
ment as  to  the  value  of  the  work  in  classrooms.  That  must 
depend  upon  the  co-operation  of  principals  and  the  interest  and 
enthusiasm  of  teachers. 

The  leaflets  which  are  distributed  should  prove  of  value  to 
teachers.  As  the  contents  of  the  leaflets  are  intended  for  all 
grades,  their  adaption  for  pupils  of  varying  ages  must  depend 
upon  the  class  teacher's  efforts,  supplemented  by  the  direction 
of  the  supervisor  and  his  assistant. 

If  voluntary  associations  of  teachers  especially  interested  or 
desiring  to  be  interested  in  nature  study  could  be  formed,  the 
service  of  the  supervisors  and  the  facilities  offered  by  the  city 
in  its  parks  could  doubtless  be  available  for  them.  An  activity 
of  this  kind  would  be  exceedingly  helpful  and  would  re-act 
favorably  on  class  instruction. 

81 


(m)       AGRICULTURE 

The  purpose,  as  stated  in  the  course,  is  "to  help  boys  and 
girls  toward  more  wholesome  and  happy  lives,  to  reduce  the 
cost  of  living  and  to  lay  the  foundation  for  more  advanced  work 
in  the  high  school  or  the  university.  The  school  garden  should 
be  considered  a  laboratory  only,  and  the  work  in  it  should  func- 
tion in  home  gardens." 

The  Committee  is  in  entire  sympathy  with  the  principles  set 
forth,  except  that  it  is  not  prepared  to  recommend  that  the 
elementary  course  shall  be  determined  by  consideration  of  pre- 
paration for  secondary  instruction.  It  would  be  desirable  if  the 
garden  activities  could  be  more  closely  related  to  instruction  in 
formal  subjects  than  at  present,  at  least  in  some  of  the  schools 
visited. 

(n)     ETHICS 

Training  in  character  is  the  most  important  aim  of  education. 
Whether  morals  may  be  "taught"  by  instruction  is  an  old  and 
fruitless  theme.  A  child's  character  is  developed  through  the 
exercise  of  his  instincts,  especially  those  of  imitation,  love  and 
respect.  To  the  degree  that  the  pupil  meets  the  finest  per- 
sonalities, has  the  best  training  in  correct  habits,  becomes  actuat- 
ed by  the  noblest  motives  and  learns  to  conceive  the  highest 
ideals,  will  these  instincts  best  tend  to  express  themselves  as  his 
character  develops.  The  influence  of  the  schools,  therefore, 
will  function  in  many  and  more  important  ways  than  through 
instruction.  Nevertheless  there  is  a  place  for  moral  instruction, 
if  it  be  not  purely  didactic.  A  course  of  study  which  would  in- 
clude a  long  list  of  virtues  and  duties  might  easily  degenerate 
into  a  dry  formalism.  A  critic  would  claim  that  the  isolation  of 
one  specific  set  of  virtues,  grade  by  grade,  would  scarcely  make 
for  a  vital  training  in  the  development  of  good  men  and  women. 

But  this  is  to  affirm  that  the  teacher  would  not  apply  any  in- 
telligence in  her  work.  It  has  not  been  possible  to  say  how  suc- 
cessfully the  present  course  in  ethics  has  actually  been  applied. 
The  extensive  bibliography  attached,  if  consulted  and  followed, 
will  be  found  to  give  abundant  direction,  through  principle, 
method,  and  device.  It  should  make  instruction  in  ethics  a 
valuable  adjunct  to  the  more  important  agencies,  whether  they 
function  through  the  influence  of  individuals  or  of  communities. 

The  committee  wishes  to  refer  to  the  attitude  displayed  by 
principals  and  teachers  towards  the  children  in  the  school,  in 
all  cases  where  visits  were  made.  It  exemplified  certain  excel- 
lent qualities.  Without  exception  this  attitude  was  courteous, 
cordial  and  gracious;  it  was  fully  reciprocated  by  the  pupils. 
It  is  true  that  the  dominant  types  of  pupils  who  attend  the 

82 


schools  in  Los  Angeles  have  better  parental  guidance  and  better 
homes  than  are  found  in  many  other  large  cities;  it  is  also  true 
that  special  types  are  segregated  in  classes  or  buildings  set  apart 
for  them.  All  these  facts  have  facilitated  these  fortunate  re- 
lations and  this  happy  influence.  Nevertheless,  the  merit  for 
their  existence  must  be  attributed  to  the  administrators,  prin- 
cipals and  teachers  directly.  It  is  an  altogether  happy  condition 
and  indicates  that  there  is  ethical  instruction  in  the  schoo's 
whether  it  be  conscious  or  not. 

RECOMMENDATIONS 

Inasmuch  as<  this  course  of  study  has  been  recently  established 
the  Committee  recommends: 

1 :  That  the  teachers  be  requested  to  make  note  of  its 
operation  and  to  be  prepared  to  make  suggestions  as 
to  its  improvement. 

2:  That  in  case  a  bjureau  of  research  is  established  it  shall 
render  expert  assistance  in  making  such  modifica- 
tions as  may  be  desired. 

4.     EXTRA    SUBJECTS   OR   ACTIVITIES   NOT   INCLUDED    IN   THE 

SECTION  ON  THE  COURSE  OF  STUDY 
(a)  DEPARTMENT  OF  PHYSICAL  EDUCATION 

This  department  employs  one  supervisor  and  six  assistants, 
one  of  whom  is  now  on  leave  of  absence  and  one  of  whom  has 
recently  resigned.  It  plans  and  organizes  the  physical  activities 
of  the  elementary  schools,  including  the  gymnastic  exercises, 
plays,  games,  tournaments  and  festivals.  It  also  employs  four 
special  teachers. 

The  work  is  well  organized,  and  the  number  of  supervisors 
employed  not  excessive.  Each  assistant  supervises  the  work  of 
from  195  to  251  classrooms,  and  supervises  from  five  to  fifteen 
playgrounds.  The  distribution  of  time  indicates  the  scope  of 
activity. 

TABLE  22:     SHOWING  ASSIGNMENT  AND   WORK  OF  ASSISTANT  SUPERVISORS 
OF  PHYSICAL  TRAINING  IN  THE  MONTH 


District 

School 
visited 

Playgrounds 
supervised 

Rooms 

visited  ' 

Children    in 
district 

1 

25 

5 

194 

6000 

2 

30 

11 

210 

7000 

3 

227 

6 

241 

9000 

4 

19 

11 

259 

94000 

5 

26 

15 

304 

11208 

83 


The  apparent  inequality  in  work  is  partially  explained  by 
the  variations  in  distance  which  each  assistant  supervisor  must 
travel,  and  the  amount  of  special  work  required  which  cannot  be 
assigned  equally  to  al  . 

Under  the  supervision  of  this  department  there  are  now  main- 
ta'ned  62  playgrounds  for  children. 

The  supervisor's  estimate  of  needs  are  based  on  a  distribution 
of  17  days  per  month  of  service  in  the  schools,  and  3  days  of 
necessary  conferences,  special  visits  and  office  work.  This  as- 
signment would  require  8  to  9  assistants. 

This,  however,  is  predicated  on  the  supposition  that  all  teach- 
ers in  every  class  in  the  Los  Angeles  schools  need  an  equal  amount 
of  special  assistance,  guidance,  or  inspection.  Probably  no 
such  necessity  exists.  There  are  doubtless  many  classes  where 
the  classroom  work  in  physical  education  is  exceedingly  well 
done,  and  where  really  little  supervision  is  necessary.  Super- 
vision must  become  selective.  The  Committee  is  unable  to 
make  any  recommendation  with  the  data  at  hand. 

(b)       AFTERNOON    PLAYGROUNDS 

If  children  have  no  opportunity  of  meeting  together  for  play 
in  groups,  either  because  opportunities  are  lacking  or  because 
their  own  safety  is  endangered,  it  is  an  excellent  thing  for  the 
Board  of  Education  to  provide  facilities  in  the  playground.  The 
importance  of  play  in  education  is  by  no  means  confined  to  the 
kindergarten. 

Your  Committee  is  of  the  opinion  that  afternoon  playgrounds 
should  be  continued  excepjt  in  cases  where  there  are  sufficient 
facilities  for  play  in  the  immediate  neighborhood. 

(c)       HEALTH   AND    DEVELOPMENT 

The  Health  and  Development  Department  employs  a  supervis- 
ing physician,  eleven  physicians  and  seven  nurses.  One  of  the 
physicians  is  present  at  stated  hours  in  the  Olive  street  office  to 
diagnose  organic  conditions  and  to  conduct  psychological  tests. 
In  addition  to  this  staff  there  is  the  Parent-Teacher's  Clinic,  now 
supported  by  the  Board  of  Education,  which  employs  three 
dentists  and  two  clerical  assistants.  There  is  also  some  volun- 
tary service  by  physicians  at  the  clinic. 

The  eleven  physicians  and  seven  nurses  engaged  in  field  work 
aim  to  examine  each  school  child  once  a  year,  although  they 
have  not  succeeded  in  doing  so  in  practice.  The  result  of  each 
examination  is  entered  on  a  card,  and  these  cards  are  filed  in  the 
principal's  office,  i  arents  are  notified  of  the  results  where 

84 


such  action  seems  necessary.  When  parents  pay  no  attention 
to  communications,  and  it  seems  advisable  to  follow  up  a  case, 
they  are  visited  by  the  nurses.  The  work  of  the  nurses  employed 
by  the  Board  of  Education  should  not  be  confused  with  that  of 
representatives  of  the  City  Board  of  Health.  The  latter  ex- 
amine for  contagous  diseases.  This  duplication  of  effort  must  of 
necessity  involve  some  waste. 

In  a  special  report  prepared  by  the  supervisor  for  the  com- 
mittee, it  appears,  that  of  the  total  number  of  children  enrolled 
each  year  for  the  last  three  years,  50%  have  been  examined 
each  year.  As  the  enrollment  has  increased  annually  and  the 
force  has  remained  the  same,  it  is  impossible  to  maintain  even 
a  50%  rate  of  examinations  if  the  present  methods  are  continued. 

The  great  increase  in  territory  and  in  the  enrollment  has  yet 
further  multiplied  the  difficulties  of  the  staff.  For  these  reasons 
the  supervisor  recommends  an  increase  of  his  present  staff. 
Other  recommendations  concerning  open-air  classes  and  classes 
for  defectives,  imbeciles,  epileptics,  etc.,  which  had  already  been 
recommended  by  this  committee,  are  also  made  by  the  super- 
visor. 

If  the  present  methods  are  to  be  continued  the  committee 
cannot  question  that,  if  the  medical  staff  were  insufficient  in 
number  to  do  the  work  of  the  department  in  1913,  the  need  for 
an  increase  is  greater  now  than  then. 

A  teacher  can  render  valuable  help  in  the  health  and  develop- 
ment work.  She  should  not  be  permitted  to  make  a  diagnosis, 
but  she  is  perfectly  competent  to  answer  direct  questions  con- 
cerning certain  obvious  conditions  of  pupils  when  the  questions 
have  been  prepared  by  a  physician.  Such  a  method  does  not 
constitute  a  medical  examination.  It  may,  on  the  other  hand, 
be  so  used  as  to  greatly  reduce  the  number  of  examinations 
which  experts  would  otherwise  be  compelled  to  make.  It 
allows  the  medical  expert  to  give  more  time  and  more  careful 
attention  to  pathological  cases  which  need  very  careful  exami- 
nation. The  problem  of  school  hygiene  will  never  be  solved  if  it 
requires  that  physicians  must  make  an  original  examination  of 
every  pupil  every  year.  The  cost  in  a  large  city  would  be  pro- 
hibitive. Aside  from  that,  it  would  not  provide  for  work  which 
is  really  important, — not  examinations  merely  but  interviews  with 
parents  in  which  the  physician  should  share. 

The  health  and  development  of  children  is  a  special  phase  of 
medical  practice.  Its  organization  requires  not  medical  knowl- 
edge only,  but  familiarity  with  all  existing  methods  of  school 
hygiene  in  American  cities. 

Whoever  is  employed  on  it  should  give  executive  ability,  full 
time  and  complete  attention.  The  committee  recommends  that 

85 


at  least  the  majority  of  the  physicians  attached  to  this  depart- 
ment give  their  entire  time  and  effort  to  what  is  probably  one  of 
the  most  important  of  social  as  well  as  economic  problems. 

(d)       LIBRARY    DEPARTMENT 

The  committee  has  been  unable  to  make  any  study  of  the 
Library  Department.  Principals  of  schools  have  invariably 
stated  that  this  department  has  been  of  great  value  in  furnishing 
elementary  schools  with  a  variety  of  reading  books  to  supple- 
ment the  books  furnished  by  the  state,  and  that  the  service  has 
been  prompt  and  satisfactory. 

(e)       ORCHESTRA    DEPARTMENT 

The  committee  with  its  limited  opportunities  for  observation, 
approves  the  results  obtained  by  the  establishment  of  orchestras. 
With  but  two  exceptions,  each  school  visited  had  its  own  little 
orchestra.  In  every  place  visited  the  pupils  showed  consider- 
able pride  in  its  existence. 

(f)       RECOMMENDATIONS 

The  Committee  recommends: 

1:  That  a  study  be  made  indicating  in  what  centers  play- 
grounds should  be  discontinued  or  extended. 

2:  That  the  majority  of  the  physicians  employed  in  the 
Health  and  Development  Department  give  full  time 
to  the  work  of  child  hygiene. 

3:  That  a  study  be  made  to  determine  the  proportionate 
number  of  nurses  and  physicians  to  be  employed,  in 
order  to  discover  the  most  effective  method  to  care 
for  the  health  and  development  of  pupils. 

5.     THE   PROFICIENCY   OF   PUPILS   IN   THE    Los   ANGELES 
ELEMENTARY  SCHOOLS 

With  the  enormous  increase  in  the  cost  of  public  education 
in  the  last  decade,  cities  throughout  the  country  have  been 
forced  to  recognize  the  criticism  in  regard  to  the  actual  efficiency 
of  instruction,  of  the  ability  of  children  to  read,  to  write,  to 
cipher  and  to  spell. 

The  special  subjects,  music,  art,  nature  study,  school  gardens, 
dramatics,  playgrounds,  etc.,  have. taken  much  of  the  time  of  the 
principals  and  advisory  staff.  In  many  cases  the  principals  and 
supervisors  have  been  elected  on  the  basis  of  their  ability  to  do 
these  things.  It  is  a  well  known  fact  in  educational  adminis- 

86 


tration  that  the  members  of  the  teaching  corps  respond  to  the 
thing's  that  attract  attention  at  a  particular  time.  Consequently 
some  of  the  larger  cities  have  found  that,  with  the  emphasis  on 
the  new  things,  there  has  been  a  disposition  to  neglect  the  funda- 
mentals. 

A  division  of  research,  or  a  group  of  specially  qualified  persons, 
should  undertake  to  discover  what  is  the  progress  of  pupils  in 
these  fundamental  subjects.  It  cannot  be  done  in  a  brief  time, 
for  a  study  of  this  kind  requires  a  careful  investigation. 

It  is,  however,  a  mistake  to  assume  that  it  is  an  impossible 
thing  to  do.  It  has  been  done  quite  recently  for  the  city  of 
Cleveland.  The  school  officers,  the  Board  of  Education,  and  the 
public  generally,  should  know  whether  the  pupils  are  proficient 
or  not.  A  feeling  exists  in  many  communities  that  the  addition 
of  so  many  special  vocations  has  tended  to  obscure  the  importance 
of  former  subjects. 

Of  the  two  methods  of  making  a  study  of  school  instruction, 
i.  e.,  by  a  group  of  persons  selected  for  that  purpose  for  a  brief 
time,  or  by  a  division  or  bureau  in  the  office  of  superintendent, 
the  first  method  has  the  advantage  of  speed.  Within  a  few 
months  it  would  be  possible  to  state  definitely  the  proficiency  of 
pupils,  the  great  object  for  which  the  schools  of  a  city  are  estab- 
lished. Yet  such  information  is  of  little  value  unless  construc- 
tive efforts  are  made  to  modify  or  improve  conditions  that  such 
a  study  would  indicate. 

A  bureau  or  special  division  works  more  slowly  but  more 
persistently.  Its  services  are  available  not  only  for  the  purpose 
of  a  general  study  but  for  the  intensive  examination  of  single 
aspects  of  administration.  It  discharges  no  executive  functions 
and,  therefore,  does  not  duplicate  the  activity  of  the  executive 
officers.  Moreover,  because  of  its  continuance  its  work  is 
cumulative. 

RECOMMENDATIONS 

The  Committee  recommends: 

1:  That  a  survey  be  made,  similar  though  not  necessarily 
identical  with  the  survey  recently  completed  in 
Cleveland,  to  determine  the  proficiency  of  pupils  of 
the  Los  Angeles  public  schools  in  the  so-called  es- 
sentials. 

Nothing  in  this  recommendation  should  be  interpreted  to 
mean  that  the  pupils  of  the  Los  Angeles  schools  are  not  as  well 
advanced  in  arithmetic,  penmanship,  reading  and  spelling,  as  are 
pupils  anywhere  else.  Neither  the  members  of  this  Committee, 
nor,  so  far  as  any  information  or  records  are  available, — is  any 
other  person  competent  to  state  what  the  conditions  are.  At 
present  it  is  a  matter  of  opinion  only. 

87 


INTERMEDIATE  SCHOOLS 

1.     INCLUSIVENESS  OF  THE  TERM  AS  USED  IN  Los  ANGELES 

There  has  been  some  confusion  in  the  discussion  of  the  inter- 
mediate schools  in  Los  Angeles,  due  to  the  fact  that  they  are 
not  alike.  For  example,  Boyle  Heights  consists  of  8th,  9th  and 
10th  grades  only;  the  Lincoln  school  consists  of  7th,  8th,  9th, 
10th,  llth,  and  12th  grades.  Thus  it  may  be  seen  that  the 
Boyle  Heights  school  represents  a  three-year  unit  of  instruction, 
whereas  the  Lincoln  school  represents  a  six-year  unit  of  instruction. 
As  a  matter  of  fact,  in  the  Lincoln  school  and  others  which  are- 
similar  to  it,  the  organization  shows  in  effect  the  old-fashioned 
division  between  the  two-year  grammar  school  and  the  four- 
year  high  school.  There  are  thousands  of  schools  like  this 
throughout  the  country.  Practically  all  village  schools  are 
operated  on  this  basis.  Gardena,  San  Pedro,  Wilmington  and 
one  or  two  others  of  the  smaller  schools  in  Los  Angeles  are  simil- 
arly organized. 

The  three-year  intermediate  schools, — Custer  Avenue,  Virgil 
Avenue,  Berendo  Street,  Sentous,  Thirtieth  Street,  McKinley 
Avenue  and  Boyle  Heights,  enroll  more  than  six  thousand 
students  and  are  in  charge  of  280  teachers. 

In  addition  to  these  schools,  there  are  more  than  one  hundred 
additional  classes  in  the  7th  or  8th  grades  distributed  throughout 
the  city  that  are  neither  in  the  intermediate  schools  nor  in  the 
six-year  high  school. 

The  fact  that  7th  and  8th  grade  children  are  being  taught  in 
three  types  of  schools  presents  many  complications  from  the 
standpoint  of  organization  and  co-ordination  between  the  high 
school  and  the  elementary  school. 


2.     GROWTH  IN  INTERMEDIATE  SCHOOLS 

A  study  of  the  increase  in  the  number  of  the  intermediate 
schools  and  their  enrollment  from  1910-11  to  the  present  time 
shows  one  intermediate  school  only  reported  in  1910 — Custer 
Avenue.  In  1911-12,  six  reported;  in  1912-13,  ten;  in  1913-14, 
eleven;  in  1914-15,  eleven;  in  1916,  twelve.  It  should  be  noted, 
however,  that  Lincoln,  Gardena  Agricultural  and  San  Pedro 
are  ordinary  high  schools,  with  combination  of  elementary  years 
seven  and  eight. 

The  registration  in  these  schools  has  increased  from  less  than 
one  hundred  in  1910-11  to  more  than  seven  thousand  in  1916, 
including  students  as  noted  above. 

88 


There  has  been  considerable  fluctuation  in  the  actual  registra- 
tion in  these  schools  owing  to  the  fact  that  changes  have  been 
made  in  the  districting  of  the  schools — for  example,  Custer 
Avenue,  which  started  out  with  ninety -five,  a  year  later  enrolled 
five  hundred  and  twenty.  This  enrollment  has  gone  as  high  as 
658  in  1914-15,  but  in  1916  it  dropped  back  to  582.  This  fluctua- 
tion is  not  a  measure  of  growth  so  much  as  it  is  a  measure  of 
administrative  adjustment. 


TABLE  23:     SHOWING   DETAILED   ANALYSIS   OF   GROWTH  IN  INTERMEDIATE 
SCHOOL  ENROLLMENT,  YEAR  1910-11  TO  1916 


Intermediate  School 

Year 

7th  Grade 

8th  Grade 

9th  Grade 

Total 
enroll- 
ment 

No. 

% 

No. 

% 

No. 

% 

Custer  Avenue  

1910-11 

42 

44 

53 

56 

95 

Berendo  Street  
Custer  Avenue  
Fourteenth  Street  .  .  . 
Gardena  Agricultural  . 
Thirtieth  Street  
Twenty-first  Avenue. 

1911-12 

233 
227 
255 
50 
383 
260 

41 
44 
41 

47 
47 
47 

231 
201 

288 
56 
332 

187 

41 

38 
47 
53 
41 
34 

103 
92 
76 
See 
96 
104 

18 
18 
12 
H.S. 
12 
19 

567 
520 
619 
106 
811 
551 

647 
590 
788 
101 
641 
156 
603 
1033 
690 
457 

635 
37 
643 
833 
127 
520 
770 
171 
723 
1006 
593 

Berendo  Street  
Custer  Avenue  
Fourtieth  Street  
Gardena  Agricultural 
McKinley  Avenue.  .  . 
San  Pedro  
Sentous  Street  
Thirteenth  Street  
Twenty-first  Avenue  . 
Virgil  Avenue  

1912-13 

243 
305 
459 
53 
307 
95 
312 
444 
169 
205 

38 
52 
58 
52 
48 
61 
52 
43 
24 
45 

238 
225 
192 
48 
235 
61 
231 
382 
301 
190 

37 
38 
24 
48 
37 
39 
38 
37 
44 
42 

166 
60 
137 
See 
99 
See 
60 
207 
220 
62 

25 
10 
18 
H.S. 
15 
H.S. 
10 
20 
32 
13 

Berendo  Street  
Boyle  Heights  
Custer  Avenue  
Fourteenth  Street  .  .  . 
Gardena  Agricultural 
Lincoln 

1913-14 
tt 

241 
17 
292 
456 
67 
135 
408 
85 
381 
439 
253 

37 
46 
46 
55 
53 
26 
53 
50 
53 
44 
43 

224 
14 
240 
256 
60 
385 
260 
86 
240 
369 
205 

35 
38 
37 
31 
47 
74 
34 
50 
33 
36 
34 

170 
6 
111 
121 
See 
See 
102 
See 
102 
198 
135 

28 
16 
17 
14 
H.S. 
H.S. 
13 
H.S. 
14 
20 
23 

McKinley  Avenue.  .  . 
San  Pedro  
Sentous  Street  
Thirtieth  Street  
Virgil  Avenue  

89 


TABLE  23;     CONTINUED 


Intermediate  school 

Year 

7th  Grade 

8th  Grade 

Qth  Grade 

Total 
enroll- 
ment 

No. 

Of 

/c 

No. 

% 

No. 

% 

Berendo  Street  
Boyle  Heights  
Custer  Avenue  
Fourteenth  Street.  . 
Gardena  Agricultural 
Lincoln 

1914-15 

272 
413 

285 
353 
60 
308 
433 
97 
320 
444 
278 

42 
39 
43 
45 
51 
55 
50 
61 
43 
44 
43 

218 
409 
242 
270 
58 
256 
290 
61 
277 
351 
224 

34 
39 
37 
34 
49 
45[ 
33 
39 
37 
35 
35 

157 
230 
129 
168 
See 
see 
147 
See 
143 
206 
137 

24 
22 
20 
21 
H.S. 
H.S. 
17 
H.S. 
20 
21 
22 

647 
1052 
656 
791 
118 
564 
.8701 
158 
730 
1001 
639 

McKinley  Avenue.  . 
San  Pedro. 

Sentous  Street  
Thirtieth  Street  .... 
Virgil  Avenue.  .  .'. 

90 


STATEMENT  SHOWING  ATTENDANCE  OF  Los  ANGELES  INTERMEDIATE 
SCHOOLS  MONTH  OF  FEBRUARY,  1916 


School 

7th    Grade 

Sth  Grade 

9th  Grade 

Grand 
Total 

582 
522 
615 
726 
914 
996 
735 
1195 
284 
191 
58 
681 

No. 

% 

No. 

% 

No. 

% 

*  Custer  Avenue  
Virgil  
f  Berendo  

225 
139 
234 
279 
365 
488 
383 
419 
119 
51 
18 
259 

39 
27 
38 
38 
40 
49 
52 
35 
41 
27 
31 
38 

220 
204 
221 
281 
358 
336 
202 
413 
82 
65 
23 
232 

37 
39 
36 
39 
39 
34 
•     28 
35 
29 
34 
39 
34 

137 
179 
160 
166 
191 
172 
150 
363 
83 
75 
17 
190 

24 
34 
26 
23 
21 
17 
20 
30 
30 
39 
30 
28 

-"Sentous  Street  
*80th  Street  
"•McKinley  
^14th  Street  
»  Boyle  Heights  
fSan  Pedro  
vGardena  
Van  Nuys  

^Lincoln 

ffr  IHTTKMEIIflTZ   SCHOOLS' 


too* 
ffoo 


3oot> 
tf*> 
Iff* 

ISM 


Hll-ir     I1IZ-I3    HiJ-U.  1114-15.  KI6 


01 


3.     HOLDING  POWER  OF  THE  INTERMEDIATE  SCHOOLS 

The  intermediate  school  this  year  has  enrolled  a  relatively 
high  percentage  of  students  in  the  8th  grade  as  compared  with 
the  7th  grade.  For  instance,  out  of  the  grand  total  of  4667 
intermediate  grade  students  enrolled  in  the  7th  and  8th  grades, 
52  per  cent  are  in  the  7th  grade  and  48  per  cent  in  the  8th  grade. 

In  the  non-intermediate  schools,  out  of  4123  children  enrolled 
in  the  7th  and  8th  grades,  55  per  cent  are  enrolled  in  the  7th 
grade,  and  45  per  cent  in  the  8th  grade.  These  latter  figures 
are  identical  with  the  figures  of  the  United  States  as  a  whole. 

It  is  of  importance  to  note  that  the  intermediate  school  has 
been  somewhat  more  successful  in  holding  8th  grade  students 
than  has  the  non-intermediate  school. 


4.     ELECTIVES  IN  THE  INTERMEDIATE  SCHOOLS 

Los  Angeles  has  definitely  followed  a  policy  of  providing  op- 
portunities for  wide  election  on  the  part  of  the  students  in  the 
public  schools.  This  election  is  extended  not  only  to  the 
junior  colleges  and  high  schools,  but  under  the  provisions  of  the 
intermediate  school,  certain  elections  are  extended  to  the  children 
in  the  7th  grade. 

While  it  is  true  that  for  the  purpose  of  experimentation,  the 
intermediate  school  has  permitted  children  to  elect  different 
courses,  such  as  engineering  preparatory,  mechanical  arts,  home 
economics,  literary,  scientific  and  general  elective,  yet  in  actual 
practice,  about  one-half  of  the  children  have  elected  the  literary 
scientific  course.  One  fourth  of  the  children  have  taken  the 
general  elective  or  the  commercial  course. 

The  selection  of  such  courses  does  not  mean  that  pupils  are 
taking  the  advanced  subjects  which  the  names  of  such  courses 
might  imply.  The  subjects  taken  by  the  pupils  may  be  those  of 
elementary  or  lower  secondary  years,  graded  so  that  they  will 
prepare  the  pupils  for  advanced  studies  which  such  courses 
will  ultimately  require.  Such  courses,  therefore,  can  be  estab- 
lished at  little  if  any  additional  cost. 

The  distinctive  feature  which  involves  increased  cost  is  the 
fact  that  the  students  in  the  seventh  grade  are  permitted  to  begin 
the  study  of  any  one  of  four  foreign  languages,  as  well  as  sten- 
ography. In  the  eighth  grade,  students  are  permitted  to  elect 
algebra,  and  to  continue  their  work  in  the  foreign  language  or 
stenography. 

In  the  ninth  grade  electives,  are  so  far  as  intermediate  schools 
are  concerned,  practically  identical  with  the  elective  in  the 
larger  schools  throughout  the  country.  The  only  difference  is 

92 


that  the  student  who  has  commenced  his  foriegn  language, 
mathematics  or  commercial  work  can  do  more  advanced  work 
in  the  ninth  grade. 

It  is  argued  that  the  pupil  who  spends  three  years  in  the  inter- 
mediate school  and  three  years  in  the  high  school  can,  as  a  con- 
sequence, be  much  farther  along  at  the  end  of  his  twelve  years 
of  school  in  foreign  language,  mathematics  and  commercial  work 
than  he  would  be  in  case  his  work  were  postponed  until  the  open- 
ing of  the  regular  high  school  period.  The  figures  in  table  25 
indicate  that  the  students  do  progress  more  advantageously  in 
high  school. 

A  relatively  small  per  cent  of  the  students  take  Latin,  German 
or  French  in  the  intermediate  schools.  The  largest  registration 
in  foreign  language  classes  is  in  Spanish.  Most  of  the  children 
in  the  seventh  grade  take  the  ordinary  course.  Most  of  the 
children  take  algebra  in  the  eighth  grade  and  some  foreign  lan- 
guage. The  ninth  grade  election  is  not  strikingly  different  from 
the  ordianry  first  year  high  school. 


5.     How  STUDENTS  ELECT  COURSES 

It  is  of  interest  to  learn  how  the  students  of  the  intermediate 
schools  have  reacted  toward  the  six  different  courses  offered  in 
their  curriculum.  The  table  below  shows  this  very  clearly. 

In  the  Berendo  Intermediate  school  375,  or  61  per  cent  of 
the  students  selected  the  literary  and  scientific  course;  119,  or 
19  per  cent  selected  the  general  elective  course;  79  or  12  per  cent, 
selected  the  commercial  course;  12,  or  1.9  per  cent  selected  the 
mechanics  arts  course;  10  or  1.6  per  cent  the  home  economics; 
17,  or  2.7  per  cent,  the  engineering  preparatory  course. 


93 


TAHLE  C2t:     Siiowi.va  PERCENTAGE  OF  PUPILS  i\  Even  OF  Six  COUKSKS  IN 
THE  INTERMEDIATE  SCHOOLS  OF  Los  ANGELES,  FEBRUARY  1,  1916 


Name  of 
School 

Liter'  y 
Scien- 
tific 

Gen. 

Elec- 
tive 

Com. 
mer- 
cial 

Mech. 
Arts 

Home 
Econ. 

Eng. 
Prep. 

Total 
pupils 
enrld. 

Berendo 

No  .  of  Pupils 

375 

119 

79 

12 

10 

17 

612 

per  cent 

61 

19 

12 

1.9 

1.6 

2.7 

100 

Boyle 
Heights 

No.  of  Pupils 

449 

231 

188 

21 

139 

55 

1083 

per  cent 

40 

21 

17 

1.9 

12 

5 

100 

C  uster 
Avenue 

No.  of  Pupils 

283 

83" 

180 

8 

7 

24 

585 

per  cent 

48 

14.2 

30.7 

.1 

.1 

4.1 

100 

14th  Street 

No.  of  Pupils 

283 

82 

81 

56 

142 

68 

712 

per  cent 

39 

11.5 

11.3 

7.8 

19.9 

9.5 

100 

McKinley 
Avenue 

No    of  pupils 

468 

20 

221 

64 

132 

71 

976 

per  cent 

47.9 

2 

22.6 

6.6 

13.5 

7.2 

100 

Sentous 

No.  of   pupils 

426 

75 

115 

23 

50 

38 

727 

per  cent 

58.6 

10.3 

15.8 

3.1 

6.8 

3.2 

100 

Virgil 

No.   of  Pupils 

444 

18 

28' 

7 

6 

20 

523 

per  cent 

82 

3.4 

5.3 

1.3 

1.2 

3.8' 

100 

30th  Street 

No.  of  Pupils 

498 

110 

129 

221 

68 

67 

893 

per  cent 

55.5 

12.3 

14.4 

2.3 

7.6 

7.5 

100 

Tlg-15 
or  COUTZSFS  $y   TVPILS    or 


{3**  Tjhlf  t-f) 


.  \J6O.\ 


94 


Aii  analysis  of  the  foregoing  table  reveals  the  fact  that  a  very 
large  majority  of  students  in  the  intermediate  schools  are  select- 
ing either  the  literary  or  general  elective  course.  This  is  to  be 
expected.  On  the  other  hand,  there  are  many  children  in  each 
school  who  have  selected  the  various  elective  courses.  Some- 
what striking  differences  are  noted  in  different  communities  in 
regard  to  these  features.  For  example,  in  the  Virgil  Inter- 
mediate School  5.3  per  cent,  of  the  children  chose  commercial 
work,  whereas  in  the  Guster  Avenue  30.7  per  cent,  selected  this 
type  of  work.  This,  no  doubt,  reflects  the  different  community 
sentiment  in  regard  to  commercial  work. 

In  home  economics,  the  percentage  varies  from  one-tenth  of 
one  per  cent,  in  Custer  Avenue  to  19.9  per  cent,  in  Fourteenth 
Street.  In  a  similar  way  the  other  courses  vary  in  the  percentage 
of  children  who  have  selected  them.  This  is  a  very  clear  illus- 
tration of  the  fact  that  children  in  the  different  communities 
select  courses  differently  owing  to  the  fact  that  they  have  dif- 
ferent interests.  No  doubt  this  is  one  of  the  important  merits 
of  the  intermediate  school  and  should  be  continued.  It  may  be 
that  it  will  be  found  later  to  be  possible  to  take  care  of  the  dif- 
ferent types  of  children  in  a  given  school  without  offering  as 
many  different  subjects  as  are  now  offered.  However,  it  should 
be  borne  in  mind  that  these  courses  are  not  necessarily  as  dif- 
ferent as  they  seem.  For  example,  the  mechanics  arts  course 
and  the  engineering  preparatory  course  in  the  seventh  year,  for 
all  practical  purposes,  are  identical,  so  that  the  two  courses  can 
be  offered  without  additional  cost,  and  the  differentiation  is  no 
doubt  of  real  value  on  account  of  the  fact  that  they  serve  to 
stimulate  students  to  make  a  serious  choice  of  courses  based  on 
their  later  vocational  aspirations. 

In  summarizing,  it  may  be  said  that  an  analysis  of  the  selection 
of  courses  by  pupils  in  intermediate  schools  justifies  the  argu- 
ment presented  in  their  favor  to  the  effect  that  it  will  enable 
the  children  to  select  work  adapted  to  community  preferences. 

6.     THE    PRESENT    ARRANGEMENT    OF    COURSES    SUBJECT    TO 

CHANGE 

It  should  be  said  that  these  elective  courses  have  been  offered 
in  an  experimental  way  by  the  intermediate  schools.  The 
intermediate  principals  and  teachers  themselves  are  making 
changes  constantly,  as  a  result  of  a  study  of  these  experiments. 
For  example,  some  of  the  schools  have  dropped  the  Latin,  others 
have  combined  the  French  and  Latin.  Algebra  has  been  tried 
out  in  the  B  eighth  grade,  but  there  seems  to  be  a  disposition  to 
shift  it  to  the  A  eighth  grade. 

95 


Instruction  in  the  commercial  work  seems  to  have  met  with 
success,  and  there  is  already  a  demand  for  commercial  work  in 
some  of  the  non-intermediate  schools.  It  should  be  said  in  this 
connection  that  the  teachers  and  the  principals  in  the  interme- 
diate schools  seem  to  be  extremely  anxious  to  improve  the  work 
and  to  take  advantage  of  the  results  in  every  new  experiment. 
In  other  words,  these  courses  have  not  been  put  in  the  schools 
and  left  there  without  serious  criticism  and  evaluations  on  the 
part  of  the  teachers  themselves.  This  is  a  very  wholesome 
situation. 


7.     COMPARATIVE  RECORDS  IN  HIGH  SCHOOL 

TABLE  25:     SHOWING  COMPARATIVE  RECORDS  IN  HIGH  SCHOOL  OF  INTER- 
MEDIATE    AND     GRAMMAR     SCHOOL     GRADUATES 
PUPILS  WHO  DID  NOT  ATTEND  INTERMEDIATE  SCHOOLS 


Year 

Pupils 

Per  cent. 

Number  with 
extra  credits 

3 

3^ 
4 
4^ 
5 

14 
82 
861 
209 
57 

1 

7 
70 
17 
5 

12 

51 
497 
130 
34 

Total  

1223 

100 

724 

PUPILS   WHO   ATTENDED   INTERMEDIATE   SCHOOLS 


Years  in    H.  S. 
work    inc.    Inter. 

Pupils 

Per  cent 

Number   with 
extra  credits 

3 

3^ 
4 
4^ 
5 

5 
30 
105 
12 
3 

2 
19 
69 

8 

2 

2 
19 
70 
6 

Total  

155 

100 

97 

Of  the  pupils  who  did  not  attend  intermediate  school,  14,  or  1 
per  cent.,  completed  the  course  in  three  years  (12  of  this  group 
completed  this  course  with  extra  credits);  82,  or  7  per  cent., 
completed  the  course  in  three  and  one-half  years,  51  of  whom 
received  extra  credits;  209,  or  17  per  cent.,  completed  the  course 
in  four  and  one-half  years,  and  5  per  cent,  completed  the  course 
in  five  years. 

96 


Of  the  pupils  who  attended  the  intermediate  schools,  2  per  cent, 
finished  in  three  years,  19  per  cent,  in  three  and  one-half  years, 
69  per  cent,  in  four  years,  8  per  cent,  in  four  and  one-half  years 
and  2  per  cent,  in  five  years. 

Thus  it  may  be  seen  that  90  per  cent,  of  the  pupils  who  attended 
intermediate  school  completed  the  high  school  in  four  years,  or 
less,  whereas,  only  78  per  cent,  of  the  non-intermediate  school 
students  graduated  from  the  high  school  in  four  years,  or  less. 
This  would  indicate  that  the  intermediate  school  students  are 
making  better  progress  in  the  high  school  than  the  students  from 
the  non-intermediate  school. 

If  it  should  be  established  that  the  figures  indicated  in  the 
table  above  become  truly  descriptive  of  the  situation  from  year 
to  year,  so  that  there  is  an  expectancy  of  90  per  cent,  of  the  inter- 
mediate school  students  entering  high  school  being  able  to  grad- 
uate in  four  years,  or  less,  as  compared  with  78  per  cent,  of  the 
elementary  school  students  who  are  able  to  graduate  in  four 
years,  or  less,  it  will  mean  that  the  intermediate  school  contribut- 
es much  in  the  matter  of  saving  time  on  the  part  of  students  who 
go  through  the  public  school. 

In  case  this  is  true,  the  apparent  increase  in  expense  in  the 
intermediate  schools  will  be  measurably  offset  by  a  decrease  in 
cost  in  the  high  school.  In  the  figures  above,  22  per  cent,  of  the 
students  who  entered  the  high  school  from  the  non-intermediate 
schools  spent  more  than  four  years  before  graduating.  This 
involves  considerable  expense  at  the  present  per  capita  cost  of 
instruction .  The  fact  that  one  student  out  of  twenty  spends  a 
full  year  extra  before  graduation  and  that  one  student  out  of  six 
spends  one-half  a  year  extra  before  graduation,  will,  if  the  num- 
ber becomes  large,  contribute  heavily  toward  the  cost  of  high 
school  instruction.  Again,  the  fact  that  only  8  per  cent,  of  the 
students  who  come  to  the  high  school  from  the  non-intermediate 
school  are  able  to  finish  in  less  than  four  years,  is  of  importance 
in  comparison  with  the  fact  that  21  per  cent,  of  the  children  who 
come  from  intermediate  schools  are  able  to  complete  the  high 
school  in  less  than  four  years. 

It  will  be  unwise  to  make  too  hasty  inferences  from  these 
figures;  it  is  too  early  to  make  final  judgments.  As  the  data 
accumulates  within  the  next  few  years  these  ratios  may  change. 
Nevertheless,  it  is  significant  that  the  figures,  as  far  as  they  go, 
indicate  not  only  that  the  intermediate  school  student  makes  a 
better  record,  but  that  he  costs  less  to  educate  in  the  high  school 
than  does  the  non-intermediate  school  student.  Indeed,  the 
figures  indicate  that  the  saving  effected  thus  may  partially  offset 
the  added  expenditures  earlier  in  the  school  career. 

97 


8.     DISTRIBUTION  OF  VTH  AND  STH  GRACE  PUPILS  IN  ELEMEN- 
TARY AND  INTERMEDIATE  SCHOOLS 

Relatively,  half  of  the  children  in  the  city  of  Los  Angeles  now 
in  the  7th  and  8th  grades  are  not  enrolled  in  the  inLermediate 
schools.  Figures  indicate  that  a  relatively  high  percentage  of 
the  students  who  complete  the  8th  grade  in  the  intermediate 
school  continue  in  the  9th  grade.  Likewise,  an  unusually  large 
percentage  of  the  students  enter  high  school  who  complete  the 
intermediate  schools.  93  per  cent,  of  the  students  who  completed 
the  intermediate  school  in  February,  entered  high  s?hool  this 
year.  Thus  the  figures  indicate  clearly,  that  the  intermediate 
school  tends  to  increase  the  number  of  pupils  entering  high 
school. 

9.     OVER-AGE  PUPILS  IN  THE  INTERMEDIATE  SCHOOLS 

Based  on  the  Los  Angeles  system  of  calculating  over-age,  the 
children  in  the  intermediate  and  high  schools  in  1914  were  rela- 
tively old. 

In  view  of  the  fact  that  the  promotion  rate  is  high  in  the 
intermediate  schools,  interest  arises  as  to  why  this  group  was 
over-age.  This  may  have  been  due  to  either  of  two  causes;  late 
entrance,  or  low  rate  of  promotion  during  the  first  six  years. 
Our  data  indicates  that  the  promotion  rates  are  inc  easing,  so 
that  in  the  future  it  may  be  expected  that  the  percentage  of 
over-age  shown  in  1914  in  the  intermediate  schools  will  decrease. 

TABLE  26:     SHOWING   OVER-AGE   PUPILS   IN   Los   ANGELES   INTERMEDIATE 
SCHOOLS,  OCTOBER  30,  1914 


Grade 

Boys 

Girls 

No. 

%   of 
total 

No. 

%of 
total 

13  years   and  over  

7th 

925 

66 

767 

60 

14     "            "       "    

8th 

673 

62 

253 

34 

15                        "      

9th 

390 

53 

367 

51 

OVER-AGE    PUPILS    IN    THE    HlGH    SCHOOLS,    OCTOBER    30,    1914 


/TJ  rnjn 

Be 

ys 

uraae 

No. 

%    of 
total 

15  years   and  over  

16     "            "     "      
17     "            "     "      
18     "           "       "    . 

9th 
10th 
llth 
12th 

1220 
744 
541 
312 

70 
65 
54 
52 

Girls 

No. 

%    of 
total 

850 

54 

686 

57 

498 

41 

352 

45 

98 


The  figures  gathered  in  the  Superintendent's  office  indicated 
that  half  of  the  students  were  one  or  more  years  over- age.  As 
indicated  in  the  discussion  above,  this  will  probably  be  reduced 
later.  Los  Angeles  is  interested  in  this  problem  for  this  reason : — 
If  over-age  means  that  children  are  spending  more  than  twelve 
years  in  getting  twelve  years  of  work,  it  is  costing  a  great  deal 
of  money  for  the  city  to  provide  this  extra  year,  or  more,  of 
schooling.  On  the  other  hand,  these  figures  may  be  largely  due 
to  the  presence  of  temporary  attendants,  e.  g.,  the  children  of 
tourists.  Over-age  may  be  due  to  irregularity  in  attendance  and 
late  entrance,  or  it  may  be  that  children  who  should  have  started 
to  school  at  six  years  of  age  did  not  start  until  they  were  seven 
years  old  or  older.  In  such  cases,  the  responsibility  for  condit- 
tions  would  be  altogether  different  than  in  the  case  indicated 
above.  In  one  case  the  responsibility  belongs  to  the  parent, 
and  in  the  other  to  the  school 

At  any  rate,  the  truth  should  be  known,  and  this  can  only  be 
found  out  by  a  detailed  study  of  each  individual  child  in  the  high 
school.  Such  a  study  might  be  undertaken  to  advantage. 

10.  VARIATION  IN  RATIO  OF  TEACHERS  TO  PUPILS 
With  the  rapid  development  of  the  intermediate  schools  and 
the  vast  number  of  adjustments  necessary  in  their  organization, 
wide  variation  has  resulted  in  the  distribution  of  teachers  in  the 
various  schools.  Some  schools  have  used  relatively  many  more 
teachers  per  thousand  children  than  others.  For  example,  the 
number  of  students  per  teacher  in  Boyle  Heights  is  four  more 
than  in  Custer  Avenue;  that  is  to  say,  Custer  Avenue  averages 
19.31  pupils  per  teacher,  whereas  Boyle  Heights  averages  23.94. 
This  makes  a  difference  of  ten  teachers  per  thousand  students,  a 
difference  in  cost  of  from  $12,000  to  $16,800. 

Another  example  of  this  is  seen  in  the  case  of  the  McKinley 
and  Boyle  Heights  schools.  Within  the  past  two  years  the  Mc- 
Kinley school  has  secured  an  additional  teacher  for  each  sixteen 
students.  Boyle  Heights  has  had  an  increase  of  more  than  one 
hundred  students,  with  one  less  teacher.  It  is  true  that  Boyle 
Heights,  a  few  years  ago,  had  relatively  fewer  children  than  the 
McKinley  school.  Nevertheless,  the  difference  between  these 
schools  is  significant.  The  number  of  pupils  per  teacher  in  the 
McKinley  High  School,  March,  1916,  was  20.46;  at  Boyle 
Heights,  23.94. 

11.  NEED  OF  SOME  STANDARD  FOR  ASSIGNING  TEACHERS 
As  the  enrollment  in  these  schools  is  increasing  with  great 
rapidity,  the  Board  should  establish  a  policy  in  regard  to  the 
number  of  pupils  per  teacher  so  as  to  make  it  possible  to  distribute 
funds  throughout  the  schools  of  the  city  on  an  equitable  basis. 

99 


From  the  standpoint  of  general  administrative  theory,  it  is 
frequently  asserted  that  the  efficiency  of  the  schools  increases 
as  the  number  of  pupils  per  teacher  decreases.  However,  there 
is  a  difference  of  opinion  as  to  the  limitations  of  this  theory.  At 
the  present  time  the  situation  in  Los  Angeles  intermediate 
schools  offers  an  excellent  opportunity  for  finding  out  something 
definite  about  the  unit  to  be  recommende'd. 

The  administration  should,  by  means  of  a  detailed  survey, 
make  a  very  thorough  study  of  the  results  being  obtained  in  the 
different  schools  which  are  providing  different  numbers  of  teach- 
ers per  thousand  students.  If  tests  were  made  of  the  efficiency 
of  the  work  in  Custer  Avenue,  registering  twenty  pupils,  and  in 
Boyle  Heights  school,  registering  twenty-four  pupils  per  teacher, 
it  would  be  possible  to  find  out  whether  or  not  it  is  worth  while 
to  reduce  the  number  of  students  per  teacher  in  Boyle  Heights 
or  to  increase  the  number  of  students  per  teacher  in  the  Custer 
Avenue  school. 

While  the  demand  for  economy  at  the  present  time  may  not 
be  such  as  to  make  it  imperative  to  make  such  an  adjustment, 
yet  as  a  matter  of  future  policy,  it  is  highly  important  that  the 
experiment  which  has  gone  on  in  Los  Angeles,  viz:  that  of  pro- 
viding a  widely  varying  teaching  force  per  thousand  students, 
should  be  checked  up.  Teachers  quite  generally  seem  to  feel 
that  the  results  are  better  as  a  result  of  the  fact  that  there  is  a 
relatively  large  number  of  teachers  in  the  schools.  But,  from 
the  standpoint  of  scientific  accuracy,  these  teachers  have  no 
adequate  way  of  judging  as  to  whether  or  not  the  work  here  is 
better  than  in  other  cities  operating  under  a  different  schedule. 
Nor  do  they  have  records  to  show  that  instruction  is  more  ef- 
ficient in  one  school  than  in  another. 


12.     OPPOSITION  TO  THE  INTERMEDIATE  SCHOOLS 

It  has  been  quite  natural  to  expect  that  these  schools  should 
have  aroused  criticism.  Criticism  is  due  to  a  number  of  causes, 
among  which  is  the  shifting  of  students  from  one  school  to  the 
other.  For  example,  the  young  children  below  the  seventh 
grade  who  have  been  attending  elementary  school  R  are  sent  to 
elementary  schools,  X,  Y,  and  Z.  This  means  that  the  wishes 
and  expectations  of  parents  are  disturbed;  that  children  have  to 
accustom  themselves  to  new  routes  of  travel,  etc.,  so  that  it  is 
not  unnatural  that  a  spirit  of  opposition  is  aroused.  Children 
in  schools  X,  Y,  and  L  in  the  7th  and  8th  grades  are  sent  to  school 
R.  This  means  that  all  of  the  children  except  the  children  in 
the  7th  and  8th  grades  in  school  R  must  make  new  adjustments. 
On  the  other  hand,  the  children  in  the  district  who  are  ready  for 

100 


the  high  school  are  accommodated  much  nearer  their  own  homes 
than  would  have  been  the  case  had  they  been  transferred  to 
high  schools.  Also,  many  parents  prefer  to  have  their  children 
in  the  schools  which  enroll  only  children  of  the  first  six  grades. 
They  believe  that  older  children  should  not  associate  with  young- 
er children,  and  vice  versa.  From  the  pedagogical  standpoint, 
theory  favors  the  policy  of  providing  departmental  instruction 
as  it  has  been  earlier  developed  in  the  7th  and  8th  grades  in  the 
intermediate  school. 

Another  objection  has  been  that  some  of  the  teachers  in  the 
schools  X,  Y,  and  Z  object  to  giving  up  their  older  children. 
Some  of  them  feel  that  they  have  been  demoted.  This  feeling 
has  been  accentuated  by  the  fact  that  the  intermediate  school 
teachers  were  given  additional  pay. 

It  should  be  said  that  the  schools  cannot  be  administered  on 
the  basis  of  making  constant  adjustments  to  complaints  such  as 
the  foregoing.  Cases  involving  travel  for  an  unreasonable 
distance  should  be  given  most  serious  attention,  and  schools 
should  not  be  established  until  after  a  most  thorough  analysis 
has  been  made  by  the  Superintendent  of  the  schools  as  to  pros- 
pective difficulties.  However,  the  Board  of  Education,  on  the 
basis  of  the  analysis  as  made,  should  formulate  a  policy  and 
administer  the  schools  accordingly.  There  will  never  be  a  time 
when  some  parents  are  not  more  advantageously  located,  as 
far  as  schools  are  concerned,  than  others.  Real  estate  men 
have  long  recognized  the  value  of  close  proximity  to  schools. 

13.     A  POLICY  SHOULD  BE  ESTABLISHED  AND  OBSERVED 

The  question  as  to  whether  or  not  additional  schools  should  be 
established  can  be  answered  only  after  a  thorough  platting  of 
the  location  of  the  schools  in  such  a  way  as  to  find  out  whether 
or  not  they  can  be  extended  equitably.  In  view  of  the  increased 
attendance  in  the  upper  grades  of  the  school  course,  Los  Angeles 
can  afford  to  make  considerable  sacrifice  in  the  way  of  minor 
inconveniences,  as  far  as  distance  is  concerned,  if  it  is  known 
that  the  extension  of  the  intermediate  schools  is  desired.  The 
whole  educational  law  is  based  on  the  fact  that  the  community 
is  not  willing  to  trust  the  caprices  of  the  parent  so  far  as  the  wel- 
fare of  the  child  is  concerned.  Educational  legislation  and 
development  today  is  all  in  the  direction  of  the  attempt  to  hold 
the  largest  possible  percentage  of  children  until  after  they  have 
completed  high  school.  By  the  establishment  of  the  intermedi- 
ate school  Los  Angeles  has  introduced  a  promising  experiment. 
The  extension  of  the  intermediate  school,  when  finally  deter- 
mined after  further  study,  should  be  a  valuable  aid  in  that  direc- 
tion. 

101 


14.     ESTIMATING  THE  COST  OF  INTERMEDIATE  SCHOOLS 

Respecting  the  cost  of  intermediate  schools,  it  should  be  said 
that  the  figures  in  the  Annual  Report  are  subject  to  a  possible 
misinterpretation  due  to  the  fact  that  under  the  California  law 
it  has  been  necessary,  until  this  year,  to  keep  the  elementary 
and  high  school  funds  separate.  In  so  doing,  arbitrary  charges 
have  been  made  against  one  or  the  other  funds  from  time  to 
time,  in  order  actually  to  meet  the  needs  of  the  schools.  Thus, 
the  Auditor's  report  of  June  30th,  1915,  shows  the  following: 


School 

Cost  of 
Instruc- 
tion 

Expense  of 
Opera- 
tion 

Expense  of 
Main- 
tenance 

Extra- 
ordinary 
Expense 

Total 
Expense 

Boyle  Heights.. 

Elementary....    $41,907.60  $3,832.17  $5,044.33    $20,191 .44  $70,975.54 

Boyle  Heights  . 

High  School....      42,284.77  2,964.43  27.30        1,646.20    46,922.70 

Average   Daily   Attendance  Cost  per  capita           Total  cost  per  capita 

736  Elementary  $  69.00 

139                  High  School  239.55  $103.85 


The  Boyle  Heights  Intermediate  School  consists  of  children 
enrolled  in  the  7th,  8th  and  9th  year  courses.  The  number  of 
students  in  the  elementary  part  of  this  school  represents,  roughly, 
two-thirds  of  the  total  number.  Since  the  salaries  of  the  teachers 
are  all  paid  on  a  basis  of  the  same  salary  schedule,  it  would  seem 
that  the  natural  division  of  expense  would  be  chargeable:  two- 
thirds  of  the  total  against  the  elementary,  and  one-third  of  the 
total  against  the  high  school  fund.  However,  in  view  of  the  fact 
that  there  was  more  money  available  in  the  high  school  fund 
than  in  the  elementary  fund,  and  that  certain  limitations  in 
elementary  salaries  compelled  a  redistribution  of  funds,  more 
than  one-half  of  the  total  amount  for  operating  the  school  was 
paid  from  the  high  school  fund.  Therefore,  the  high  school 
part  of  the  intermediate  school  appears  to  cost  $239.55  per 
capita,  which  is  not  the  case.  All  costs  of  instruction  in  the 
intermediate  schools  should  be  lumped;  that  is,  $41,970.60 
should  be  added  to  $42,294.77;  this  should  be  divided  by  the 
average  daily  attendance.  A  per  capita  cost  for  instruction  in 
the  intermediate  schools  would  then  be  $91.02.  This  per  capita 
cost  is  not  unreasonable  as  compared  with  cost  of  operation  in 
the  high  school  in  view  of  the  fact  that  the  teachers  are  paid  on 
the  same  salary  schedule. 

102 


15.     RECOMMENDATIONS 

The  Committee  recommends: 

1:  That  the  policy  of  educating  children  in  the  inter- 
mediate schools  be  continued,  and  that,  after  a 
thorough  analysis  of  all  factors  involved,  additional 
intermediate  schools  be  established  from  time  to 
time,  as  conditions  warrant. 

2:  That  the  investigation  begun  by  this  Committee  be 
continued  so  as  to  discover  the  relative  effectiveness 
of  instruction  of  pupils  in  the  grammar  and  in  the 
intermediate  schools. 

3 :  That  the  policy  of  outlining  courses  suggesting  different 
life  or  vocational  interests  be  continued. 

4:  That  a  Bureau  of  Research  be  directed  to  unde  take 
the  task  of  determining  an  optimum  number  of 
children  per  teacher  in  the  various  subjects. 


103 


VI 
HIGH  SCHOOLS 

Los  Angeles  operates  the  following  high  schools: — Franklin, 
Gardena,  Hollywood,  Lincoln,  Lomita,  Los  Angeles,  Manual 
Arts,  Owensmouth,  Polytechnic,  San  Fernando,  San  Pedro,  Van 
Nuys  and  Wilmington.  These  high  schools  vary  as  to  size,  as 
is  shown  in  the  table.  They  also  differ  somewhat  in  regard  to 
character.  An  attempt  has  been  made  to  emphasize  agricultural 
work  at  Gardena;  marine  work  at  San  Pedro;  technical  work  at 
Polytechnic;  academic  work  at  Los  Angeles  and  Hollywood. 
The  Superintendent  reports  that  Manual  Arts  High  School  has 
from  the  beginning  endeavored  to  be  a  cosmopolitan  high  school. 

1.     DISTINCTIVE  FEATURES  OF  THE  HIGH  SCHOOLS 

One  of  the  distinctive  features  of  the  Los  Angeles  high  schools 
is  the  fact  that  the  students  are  given  a  wide  range  of  choice  in 
the  matter  of  taking  work  leading  toward  vocational  interests. 

The  students  in  Los  Angeles  find  it  possible  to  choose  from  a 
very  large  number  of  subjects.  Moreover,  the  principals  have 
offered  valuable  assistance  to  the  students  by  arranging  a  large 
number  of  courses  suited  to  their  different  interests. 

Reference  to  the  table^Jolmd  on  a  later  page  indicates  that  the 
actual  selection  oj^etfurses  on  the  part  Of  students  varies  from 
school  to  schpdrA  majority  of  the  students  select  what  may 
be  termefigeneral  courses.  There  are  exceptions  and  these 
excenfcfons  contribute  largely  to  the  number  of  small  classes 
reported  in  a  later  table. 


2.     THE  SPECIAL   VERSUS    THE    COSMOPOLITAN   HIGH    SCHOOL 

The  high  schools  of  Los  Angeles  have  been  established  at  dif- 
ferent periods  with  different  conceptions.  For  example,  the 
Los  Angeles  High  School  was  considered  to  be  primarily  charged 
with  the  responsibility  of  serving  students  desiring  college  pre- 
paratory work.  However,  in  recent  years  additional  courses 
have  been  established  in  commercial  work,  manual  training, 
home  economics  and  agriculture.  At  present  these  courses  in 
agriculture,  manual  training  and  home  economics  are  not  ex- 
tensive. Similarly  Polytechnic  High  School  was  created  for  the 
purpose  of  making  a  technical  high  school.  As  the  students 
have  increased  in  number  there  has  grown  a  demand  for  addi- 
tional work,  as  indicated  in  the  enrollment  in  general  elective 
courses,  which  are  in  no  sense  technical  courses.  The  Manual 
Arts  high  school  has  become  in  effect  a  cosmopolitan  high  school 
in  which  a  very  wide  range  of  courses  are  offered.  On  the  one 
hand  courses  in  Latin  are  offered;  on  the  other,  courses  in  mil- 
linery and  technical  work  for  girls,  as  well  as  machine  shop  and 
automobile  work  for  boys. 

104 


Thus  it  may  be  seen  that  these  three  schools,  established  for 
different  purposes,  have  come  to  be  more  and  more  alike.  These 
changes  are  due  not  only  to  the  possible  desire  of  the  Board  or  its 
officers  but  to  the  demands  of  the  people  within  the  adjoining 
territory. 

The  question  of  the  Special  vs.  the  Cosmopolitan  High  School 
should  be  decided  by  consideration  of  educational  values,  costs 
ind  convenience  to  students.  Unless  there  be  some  distinctive 
features  in  the  tone  or  spirit  of  a  school  organization  which  makes 
the  segregation  desirable  of  a  special  group  of  students  such  as  is 
suggested  in  the  establishment  of  junior  colleges,  there  is  no 
reason  why  the  service  of  the  high  school  should  not  be  suf- 
ficiently broad  to  meet  the  demands  of  a  neighborhood. 

Cost  is  another  important  factor.  This  is  dependent  on 
size  of  enrollment  of  classes,  and  relative  cost  of  instruction  and 
equipment.  In  those  subjects  in  which  special  equipment  is 
necessary,  such  as  the  installation  of  machine  shops,  cost  may  be 
an  important  item.  However,  a  class  in  language,  mathematics 
or  any  of  the  usual  high  school  subjects  may  be  taught  as  econom- 
ically in  one  building  as  in  another.  Again,  if  the  enrollment 
is  so  low  as  to  involve  a  duplication  of  many  small  classes,  when 
a  smaller  number  of  classes  enrolling  a  larger  number  of  children 
could  be  maintained  in  fewer  buildings,  then  some  intelligent 
discretion  should  be  used  so  as  to  guard  against  unnecessary 
expenditure. 

On  the  ground  of  convenience  all  arguments  favor  Cosmo- 
politan High  Schools.  The  committee  recommends  that  courses 
be  multiplied  in  high  schools  as  the  convenience  of  neighborhoods 
requires,  subject  to  the  condition  that  there  be  no  unneces- 
sary duplication  of  equipment  and  no  unnecessary  mul- 
tiplication of  small  classes.  These  facts  can  only  be  deter- 
mined by  special  investigation  from  time  to  time. 

3.     ELECTIVES  IN  HIGH  SCHOOLS 

With  the  growth  of  the  large  high  schools  in  Los  Angeles  it 
has  become  possible  to  offer  a  wide  range  ofysubject  matter  with- 
out materially  increasing  the  expense.  In  other  words,  if  there 
is  a  sufficient  number  of  students  taking  language  to  require  the 
entire  time  of  ten  teachers,  no  increase  of  cost  is  involved  if  some 
of  the  teachers  teach  French,  others  German,  others  Latin,  etc. 
The  large  high  schools,  consequently,  are  able  to  offer  a  wide 
range  of  electives  without  difficulty.  This,  however,  is  not  the 
case  with  the  smaller  high  schools  in  the  outlying  districts.  The 
administration  has  recognized  this  in  a  measure,  and  has  not 
offered  as  wide  a  range  of  courses  in  these  schools  as  in  the  larger 
schools.  They  have  also  attempted  to  reduce  expenses,  and  at 
the  same  time  provide  electives,  by  offering  work  in  alternate 

105 


years.  For  example,  in  the  Wilmington  High  School  the  De- 
partment of  Science  offers  physics  one  year  and  chemistry  the 
next;  thus  the  two  subjects  are  offered  without  additional  ex- 
pense as  far  as  teaching  is  concerned. 

In  general,  it  may  be  said  that  educators  are  not  agreed  as  to 
/  the  extent  to  which  students  may  be  permitted  to  elect  work. 
Some  believe  that  many  drop  out  of  high  school  because  they 
have  not  been  able  to  pursue  the  subjects  they  felt  would  be 
helpful  to  them.  Therefore  a  wide  range  of  choice  has  been 
offered.  Los  Angeles,  in  common  with  many  other  cities,  has 
offered  the  student  many  electives,  and  the  students  by  thous- 
ands have  been  attracted  to  the  schools. 

Others  believe  that  a  wide  discretion  in  electing  studies  does 
not  prove  that  the  pupil  may  choose  wisely.  This  does  not  imply 
that  the  tastes  or  abilities  of  pupils  should  be  disregarded,  but 
that  these  should  not  be  confounded  with  caprice. 

The  elective  system  should  be  continued  pending  a  study  of 
results.  Inasmuch  as  these  courses  have  been  established 
relatively  short  time,  it  is  impossible  to  determine  whether  or  not 
this  opportunity  for  free  electives  reacts  beneficially  on  students 
as  a  whole.  Because  educational  values  are  so  difficult  to  deter- 
mine, educational  results  are  usually  judged  on  the  surface. 
To  quote  one  of  the  high  school  principals: 

"The  answer  cannot  be  given  until  after  the  policy  has  been  in 
operation  six  or  seven  years,  because  students  who  have  been 
graduated  from  the  high  school  at  the  present  time  have  not 
had  the  benefit  of  the  complete  organization  extending  through 
six  years." 

In  summarizing,  it  should  be  said  that  Los  Angeles,  in  common 
with  other  cities,  is  attempting  the  experiment  of  offering  elect- 
ives with  the  hope  of  improving  the  effectiveness  of  secondary 
instruction.  The  answer  cannot  be  determined  within  less  then 
several  years,  five  at  least.  Therefore,  this  Committee  recom- 
mends that  the  elective  system  be  continued,  and  that  a  follow- 
up  method  of  tracing  the  subsequent  progress  of  pupils  be  inaug- 
urated. 

4.     GROWTH  IN  THE  HIGH  SCHOOL  ENROLLMENT 

Los  Angeles,  in  common  with  other  cities  in  the  United  States, 
shows  a  marked  increase  in  the  percentage  of  students  enrolled 
in  the  High  School.  Within  recent  years  there  has  been  every- 
where seen  a  marked  tendency  to  fill  up  the  upper  grades.  This 
is  shown  very  strikingly  by  the  figures  given  in  the  table  below. 
This  table  should  be  read  as  follows: 

In  1896-7,  of  the  total  number  of  children  enrolled  in  the  public 
schools,  12.4  percent  were  in  the  kindergarten;  19.9  per  cent, 
were  in  the  first  grade;  13.1  per  cent,  were  in  the  second  grade; 

106 


10.8  per  cent,  were  in  the  third  grade,  etc.,  showing  0.6  per  cent, 
only  in  the  12th  year. 

TABLE  27:     SHOWING   PERCENTAGE   OF   ENROLLMENT   IN   ALL   GRADES 


Year 

K 

1 

2 

3 

4 

5 

6 

7 

8 

9 

3.0 
3.2 
4.3 

5.8 
4.8 
4.9 
5.2 

10 

1.3 
1.7 
1.9 

2.8 
2.9 
3.0 
3.3 

11 

12 

.6 
.6 
.7 
1.1 
1.5 
1.48 
1.8 

96-7  
01-2  
06-7  
11-12  
12-13  

12.4 
11.1 
8.6 
9.4 
9.9 
9.85 
9.8 

19.9 
16.8 
17.9 
16.4 
16.2 
15.96 
14.4 

13.1 
12.3 
10.3 
10.4 
10.3 
10.01 
10.4 

10.8 
12.8 
12.5 
10.6 
10.3 
10.48 
9.6 

10.8 
10.8 
11.4 
9.9 
19.1 
9.96 
9.5 

9.4 
10.6 
10.5 
8.9 
8.8 
8.9 
9.2 

8.0 
9.1 

8.6 
8.6 
8.2 
8.0 
7.9 

6.0 
6.0 
7.2 
7.3 
7.1 
1.7 
8.2 

4.3 
4.2 
5.1 
6.9 

7.8 
7.7 
8.6 

.7 
.8 
.8 
1.5 
1.9 
2.11 
2.06 

13-14  

14-15 

6.3  per  cent,  of  the  total  enrollment  was  in  the  high  school  in 
1901,  and  in  1906,  7.7  per  cent,  of  the  total  enrollment  was  in 
the  high  school.  In  1911-12,  11.2  per  cent,  were  enrolled  in  the 
high  school.  In  1914-15,  12.3  per  cent,  were  enrolled  in  the  high 
school.  This  should  be  very  gratifying  to  the  City  of  Los 
Angeles,  as  it  is  an  excellent  measure  of  the  success  of  the  public 
school  system  in  holding  its  students  for  the  high  school. 

It  is  of  interest  in  this  connection  to  note  the  variable  interest 
throughout  the  United  States,  as  follows: 

Percentage  of  Total  Enrollment  Found  in   High  School 

Minneapolis 14       per    cent.    plus. 

Boston 13 

Los  Angeles 12.       " 

Detroit 9 

St.  Louis 6 

Cleveland 6 

Newark 5 

This  shows  not  only  the  fact  that  cities  vary  in  holding  power, 
but  it  also  shows  that  Los  Angeles  ranks  well  up  to  the  front  in 
this  particular. 

5.     PERCENTAGE  OF  HIGH  SCHOOL  STUDENTS  IN  SENIOR  CLASS 

Interest  attaches,  as  to  the  proportion  in  the  senior  classes, 
>f  the  total  enrollment  of  the  9th,  10th,  llth  and  12th  years. 
The  table  below  shows  that  this  number  varies  from  6  per  cent, 
in  the  Wilmington  high  school  to  24  per  cent,  in  the  Lincoln 
High  School.  The  mode  is  20  per  cent.  The  figures  for  the 
United  States  as  reported  by  the  Commissioner  of  Education  in 
1914  show  21  per  cent,  of  the  high  school  enrollment  to  be  in  the 
senior  class.  Thus  Los  Angeles  is  on  the  whole  somewhat  above 
the  normal  in  this  respect. 

107 


Table  28:     Showing  Percentage  of  Senior  Pupils  in  High  School 
of  Total  Enrolled. 

Gardena 20 

Hollywood 21 

Lincoln 24 

Los  Angeles 23 

Manual  Arts : 20 

Polytechnic 20 

San  Fernando ...  .20 

San  Pedro 15 

Van  Nuy  s 11 

Wilmington 6 

6.  ELIMINATION  OF  PUPILS  FROM  THE  HIGH  SCHOOL 

Responses  from  the  high  school  principals  relative  to  the 
number  of  students  who  dropped  out  during  the  term  ending 
February,  1916  indicates  the  fact  that  9}^  per  cent,  of  the  pupils 
in  the  various  classes  dropped  out  at  some  time  during  their 
semesters.  This  dropping  out  was  more  noticeable  in  the  case 
of  the  9th  year  than  in  the  senior  year  as  indicated  from  the  fact 
that  the  dropping  out  was  15  per  cent,  in  the  9th  year  and  only 
4-10  of  1  per  cent,  in  the  12th  year.  Only  13  per  cent,  of  the  9th 
grade  students  who  had  been  in  the  intermediate  schools  dropped 
courses,  as  compared  with  15  per  cent,  of  the  9th  grade  students 
who  had  come  from  the  non-intermediate  schools.  For  the  10th 
year  12  per  cent,  of  the  former  intermediate  school  students 
dropped  their  work  .as  compared  with  9  per  cent,  of  the  non- 
intermediate  school  students.  This  indicates  that  a  certain  gap 
still  exists  for  the  student  who  enters  the  high  school  from  the 
intermediate  school.  In  other  words,  the  students  who  entered 
the  high  school  from  the  8th  grade  found  difficulties  of  adjust- 
ment, as  indicated  by  the  percentage  of  students  dropping  work, 
and  in  the  same  way  the  students  in  the  10th  year  coming  from 
the  intermediate  school  found  similar  difficulties  of  adjustment  as 
indicated  from  the  fact  that  12  per  cent,  dropped  the  work. 

However,  in  the  llth  and  12th  grades  the  intermediate  school 
student  makes  a  better  record,  as  far  as  dropping  courses  is 
concerned,  than  does  the  student  from  the  grammar  school. 


108 


Table  29  below  shows  this  data  in  detail. 

TABLE  29:     SHOWING  THE  ELIMINATION  OF  HIGH  SCHOOL  PUPILS 
ACCORDING  TO  YEARS 


1 

No. 

No. 

elmd. 

No. 

elmd. 

No. 

who 

enrld. 

who 

Per 

enrld. 

enrld. 

from 

enrld. 

Total 

cent. 

from 

From 

Per 

ord. 

from 

Per 

Grade 

Total 

elimin- 

elimin- 

inter. 

inter. 

cent. 

8th 

8th 

cent. 

year 

enrl. 

ated 

ated 

school 

school 

elmd. 

grade 

grade 

elmd. 

9 

2427 

358 

15 

443 

59 

13 

1976 

299 

15 

10 

2501 

247 

10 

1151 

135 

12 

1296 

112 

9 

11 

1857 

151 

8 

700 

41 

6 

1101 

110 

10 

12 

1238 

50 

4 

403 

13 

3 

793 

37 

5 

Total  . 

8023 

806 

10 

2697 

248 

9 

5166 

458 

9 

Grand  Total  Enrollment 15886 

elimination 1512 

per  cent 9.5 

The  table  means  that  in  the  9th  grade  there  were  2,427  students 
enrolled,  358,  or  15%  of  whom  dropped  a  course.  59,  or  13% 
of  the  443  students  who  came  from  the  intermediate  school 
dropped  a  course,  etc. 

7.  SIZE  OF  CLASSES  IN  INTERMEDIATE  AND  HIGH  SCHOOLS 
The  Board  of  Education  in  January  of  this  year  sent  out  an 
inquiry  to  each  teacher  in  the  city  asking  for  a  detailed  state- 
ment of  the  teacher's  activity  for  each  day  in  the  week,  including 
the  time  given  to  actual  classes,  roll  call,  conference  periods, 
assembly  duty  and  playground,  together  with  the  number  of 
students  under  the  charge  of  the  teacher  during  each  of  these 
periods. 

These  data  were  rearranged  by  your  committee  for  the  entire 
city  so  as  to  show  the  size  of  classes  in  each  intermediate  and 
high  school  in  the  different  subjects  taught.  Reference  to  the 
tables  following  makes  it  possible  for  this  information  to  be 
secured  for  each  school.  Tables  30-31  show  the  distribution 
of  classes  by  subjects  in  the  high  and  intermediate  schools  com- 
bined. It  should  be  borne  in  mind  that  the  number  of  classes 
of  different  size  is  subject  to  variation  from  semester  to  semester 
and  even  at  different  times  in  the  same  semester.  However, 
these  are  the  facts  for  the  week  ending  January  28,  1916,  as 
given  by  the  teachers.  Every  teacher  in  the  city  reported. 

It  is  noteworthy  that  there  was  wide  variation  in  the  size  of 
classes.  For  example,  more  than  25  per  cent,  of  the  classes 
registered  fewer  than  15  students.  There  were  more  than  650 
classes  registering  fewer  than  10  students.  On  the  other  hand 
there  were  176  groups  enrolling  40  or  more  students. 

109 


TABLE  IJO:     SHOWING  THE  DISTRIBUTION  OF  ("LASSES  BY  SUBJECTS  ix  THE 
HIGH  AXD  INTERMEDIATE  SCHOOLS 


Size  of  Class 


0 

to 
4 

5 

to 
9 

10 
to 
14 

15 

to 
19 

20 
to 
24 

25 

to 
29 

30 
to 

34 

35 

to 
39 

40 

to 
44 

45 

to 
49 

50 

Medi- 
ans 

Cooking.  .  .  . 

6 

25 

24 

47 

24 

2 

15-19 

Sewing  

18 

22 

35 

71 

40 

12 

3 

1 

15-19 

French  

4 

17 

22 

21 

12 

4 

10-14 

English  

31 

40 

72 

87 

165 

164 

102 

52 

12 

3 

20-24 

Algebra  

4 

7 

17 

26 

40 

57 

27 

5 

1 

20-24 

Drawing.  .  .  . 

18 

44 

46 

66 

68 

63 

14 

4 

'9 

5 

15-19 

Manual    and 

industrial  . 

Arts  

14 

57 

82 

91 

55 

24 

1 

15-19 

Supervision 

of  study 

hall  

19 

22 

16 

21 

36 

40 

57 

38 

11 

6 

26 

25-29 

Geometry.  .  . 

10 

7 

12 

23 

26 

4 

20-24 

Commercial 

and     busi- 

ness  arith- 

metic   

2 

5 

9 

9 

5 

4 

2 

1 

15-19 

Trigono- 

metry .... 

1 

1 

1 

2 

1 

10-14 

Stenography 

16 

11 

16 

27 

16 

10 

4 

3 

1 

15-19 

Typewriting 

4 

7 

13 

19 

12 

4 

2 

3 

1 

15-19 

Bookkeep- 

ing. 

2 

15 

21 

31 

17 

17 

6 

4 

1 

15-19 

Physiology 

and  hygiene 

4 

6 

9 

10 

8 

11 

5 

4 

2 

20-24 

General 

science  

4 

5 

12 

4 

11 

3 

5 

20-24 

Agricultural  . 

29 

15 

12 

9 

5-9 

General 

Music  .... 

11 

21 

16 

18 

12 

20 

14 

12 

10 

2 

2 

20-24 

Chorus 

Music.  .  .  . 

2 

1 

8 

6 

4 

5 

5 

1 

2 

9 

25-29 

Orchestra 

Music.  .  .  . 

9 

7 

3 

3 

3 

1 

1 

5-9 

110 


TABLE  30     COXTINTEO 


Size  of  Class 


0 
to 
4 

5 
to 
9 

10 
to 
14 

15 
to 
19 

20 
to 
24 

25 

to 
29 

30 
to 
34 

35 

to 
39 

40 
to 
44 

45 
to 
49 

50 

Med- 
ians 

Physical 
training.  .  . 

4 

5 

25 

35 

30 

19 

22 

19 

14 

8 

17 

20-24 

Athletics.  .  .  . 

2 

6 

4 

7 

1 

1 

1 

2 

15-19 

Latin.  ....... 

12 

27 

17 

19 

20 

23 

8 

15-19 

Spanish  

7 

21 

28 

31 

54 

37 

16 

8 

-• 

20-24 

German  

8 

19 

18' 

29 

11 

8 

2 

1 

15-19 

History  

3 

15 

23 

33 

'58 

69 

58 

28 

7 

3 

25-29 

Geography  .  . 

1 

2 

3 

9 

7 

18 

11 

11 

7 

1 

1 

25-29 

Arithmetic  .  . 

2 

1 

7 

16 

22 

27 

26 

12 

5 

2 

25-29 

Total  

227 

426 

551 

760 

757 

677 

400 

219 

85 

36 

55 

Grand  total 


.4193 


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8.     ATTENDANCE  BY  SCHOOLS  AND  SUBJECTS 

TABLE  31:     SHOWING  ATTENDANCE  BY  SCHOOLS  AND  SUBJECTS  IN  INTER- 
MEDIATE AND  HIGH  SCHOOLS  FOR  WEEK  ENDING  JANUARY  28,  1916 


Berendo  I. 

McKinley  L 

| 

Sentous  I. 

"=? 
j2 

S' 
35 

IN 

1 

•  ~~ 

_=: 
.5 

^ 
£ 

e 
x: 

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i 
j 

Wilmington  I.  &  H. 

1 

s 

e 

> 

Lomita 

Owensmouth  H. 

i 

8 
£ 

t 

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a 

s 

3 

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153 

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1 

ARITHMETIC— (including  Household  Arithmetic) 


0-  4  
5-  9 

1 

1 

i 

2 
1 

10-14 

i 

1 

1 

2 

1 

i 

7 

15-19  .  . 

9 

;i 

3 

1 

1 

1 

2 

2 

i 

16 

2Q-24.  .  .. 
25-29  
30-34  
35-39  
40-44... 
45-49.  . 
50-.  . 

3 

i 

'2 
i 

i  '•  CO  rf^  tOCO 

'4 

10 
2 
1 

2 
4 
1 

1 
5 

i 

2 
3 
2 
1 
1 
1 

2 
5 
3 
1 

2 

2 
1 

5 
3 
3 

3 
3 

i 

.  . 

.  . 

22 
27 
26 
12 
5 
2 

Commercial  and  Business  Arithmetic 


0-  4.  . 
5-  9.  ... 

i 

i 

\ 

i 
1 

i 

i 

2 
5 

10-14.  .  .. 
15-19.  .  .. 
20-24  

1 
1 

1 

2 

1 

1 

i 

i 
i 

i 

i 
i 

i 

i 

i 

i 
3 

1 

'•2 

9 
9 
5 

25-29  

1 

i 

1 

1- 

4 

30-34.  .  . 

i 

1 

2 

35-39  
40-44    . 

i 

1 

45-49  .  . 

50-  

Algebra 


0-  4.  . 

1 

k. 

1 

1 

1 

4 

5-9  

1 

• 

4 

1 

1 

7 

10-14.  . 
15-19.  .  .. 
20-24  
25-29.  
30-34  
35-39  

2 

2 
1 

3 
1 

1 
2 
5 
3 

'3 
3 

'2 
1 

3 

5 

3 
1 

1 
2 

1 
4 
1 

1 
2 

1 
4 
3 

1 

1 
4 
4 
2 

3 

2 
2 
4 
1 

2 
1 

1 

'2 
1 

1 

'l 

'1 

2 

1 

1 
1 
3 
7 
6 

2 
4 
6 

8 

1 
6 

S 
5 

1 
2 

11 
2 

17 
26 
40 
57 

27 
5 

40-44  
45-49  .  . 

1 

0 
1 

50-  

• 

112 


TAHLK  31- — CONTINUED 


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^ 

j 

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'^ 

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^J 

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^ 

c 

"•N 

^ 

s 

^ 

^ 

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^ 

1 

«^ 

S- 

•g 

• 

*> 

• 

Q 

^ 

X 

^ 

5J 

TH 

w 

55 

•« 

tt 

tp 

"""•H 

' 

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c 

• 

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•^ 

^ 

^ 

~ 

• 

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c 

^ 

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1 

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IS 

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^ 

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1 

£ 

>S  ize  of 
Class 

Geometry  (Plane,   Solid  and    Descriptive) 

0-  4.  . 

5-9  

1 

i 

i 

1 

'2 

'2 

i 

1 

10 

10-14  

i 

1 

1 

1 

1 

2 

7 

15-19  

1 

i 

'l 

1 

i 

1 

i 

2 

1 

1 

1 

12 

20-24  

'2 

1 

5 

3 

6 

6 

23 

25-29  

i 

2 

6 

7 

(i 

4 

26 

30-34  

1 

1 

1 

1 

4 

35-39  

40-44  

45-49  

Trigonometry 


0-  4.  . 

1 

1 

6-9  

1 

1 

10-14  

1 

1 

15-19  

20-24 

25-29  

1 

1 

2 

30-34  

1 

1 

35-39  

40-44  

45-49  



Geography 


0-  4.  . 

(i-  9 .  . 
10-14. . 
15-19. . 
20-24 .  . 
2-5-29 .  . 
30-34. . 
35-39 .  . 
40-44 .  . 
45-49 .  . 
50-.  . 


1 

1 

1 

1 

2 

1 

1 

1 

3 

1 

'2 

2 

1 

3 

9 

2 

'2 

1 

2 

7 

1 

2 

1 

3 

1 

2 

5 

2 

1 

18 

2 

1 

3 

2 

3 

1 

11 

2 

2 

2 

1 

3 

1 

11 

2 

1 

1 

2 

1 

7 

1 

1 

1 

1 

113 


TABLE  31 — CONTINUED 


^ 

* 

^ 

* 

S3 

^ 

* 

&3 

0 

•i 

: 

^ 

^ 

s 

*" 

IS 

~ 

^ 

-« 

e 

t 

/ 

^ 

£: 

Berendo  I 

Me  Kinley 

| 
j-^ 

r£ 

1 
s 

ID 

X; 

I 

i 

1 

c/; 

\  Gardena  I 

Wilmingtoi 

g 

I 

c 

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y-. 

6 

I 
i 

05 

Manual  A 

* 

1 

Hollywood 

1 

Size  of 
Class 

History 

0-4  

1 

1 

1 

3 

5-9  

1 

2 

1 

1 

1 

2 

2 

1 

2 

1 

1 

1 

15 

10-14 

3 

2 

1 

1 

<;> 

2 

3 

4 

2 

2 

i 

23 

15-19 

1 

4 

1 

2 

1 

4 

2 

5 

2 

1 

6 

3 

^ 

33 

20-24  

1 

2 

4 

1 

3 

4 

1 

2 

6 

3 

2 

1 

7 

13 

4 

4 

58 

25-29 

4 

5 

3 

2 

2 

3 

5 

2 

2 

1 

1 

1 

11 

18 

1 

g 

69 

30-34  

1 

2 

3 

2 

1 

8 

5 

4 

4 

1 

6 

4 

7 

10 

58 

35-39  

4 

3 

3 

2 

3 

3 

1 

4 

5 

28 

40-44  

1 

1 

2 

1 

1 

1 

7 

45-49  

2 

1 

3 

50-  

General  Science 


0-  4 

5-9  

1 

1 

1 

1 

4 

10-14 

2 

1 

1 

1 

5 

15-19 

1 

\ 

1 

1 

2 

1 

2 

1 

2 

12 

20-24    . 

1 

2 

1 

4 

25-29    . 

2 

1 

1 

2 

2 

3 

11 

30-34  

1 

2 

3 

35-39  
40-44  

1 

2 

2 

•• 

5 

45-49 

50- 

English 


0-4  

1 

3 

4 

2 

5 

2 

1 

1 

3 

2 

3 

1 

3 

31 

5-  9  
10-14  

3 

(\ 

4 

7 

3 

7 

8 

1 
2 

3 

4 
9 

3 

4 

4 

1 
5 

1 

3 

1 
1 

1 

'3 

4 

7 

4 
3 

3 
9 

3 

40 

72 

15-19  
20-24.  . 

1 
5 

8 
3 

3 

8 

3 

4 

2 

7 

6 

8 

4 

7 

1 

8 

3 
H) 

4 

8 

4 
3 

3 

1 
1 

1 

4 

18 
22 

6 
>5 

10 
'>3 

5 
17 

87 
165 

25-29  

4 

7 

6 

7 

7 

9 

6 

7 

8 

T) 

5 

M 

?5 

'^5 

93 

164 

30-34  
35-39  

3 

<> 

8 
6 

12 
4 

4 
11 

7 
2 

g 

12 
6 

7 
4 

8 
5 

1 

10 
2 

3 

1 

7 

13 

/ 

102 
52 

40-44 

4 

3 

1 

2 

1 

1 

2 

12 

45-49 

1 

1 

i 

3 

114 


TABLE  31 — CONTINUED 


Berendo  1  . 

McKinley  1. 

"t; 

~-H 

y. 

a 

_£ 

2 
OQ 

"T 

—  i 

00 

1 

^ 

| 

•  r- 

H 

si 

0 

1 

5 

OQ 

e 

1 

£ 

J 

S 

s 

Lomita 

Owensmouth  H. 

San  Fernando  H. 

Manual  Arts  H. 

S; 

•f" 

Holhnrood  H.  &  J.  C.I 

3 

1 

Size  of 
Class 

French 

(i-  4.  . 

1 

1 

3 
1 

1 
3 

2 

2 
2 
1 

1 
2 

1 

1 

2 
1 
2 

'4 

1 

1 

1 
1 
4 
1 
2 

1 
2 

1 
4 
1 
1 

1 
7 
1 
1 

2 
2 

2 

4 
17 
22 
21 
12 
4 

5-9  
10-14  
15-19  
20-24  

'5 

1 

1 

25-29  
30-34  
35-39  
40-44  

45-49  
50-  

German 


0-  4.  . 
5-  9 

\ 

9 

i 

1 
2 

2 
3 

3 

1 
2 

2 

1 

1 
1 

1 

i 

1 

'i 

8 
19 

10-14  

9, 

1 

1 

1 

3 

1 

3 

?, 

1 

1 

1 

1 

18 

15-19  

1 

1 

3 

3 

1 

1 

1 

2 

2 

3 

3 

4 

4 

29 

20-24  

1 

1 

1 

1 

2 

3 

?, 

11 

25-29 

1 

1 

1 

1 

1 

1 

1 

9 

8 

30-34 

1 

2 

35-39. 

1 

1 

40-44.  . 

45-49.  . 

50-  

Spanish 


0-  4 

5 

1 

1 

7 

5-  9  . 

1 

?, 

1 

?, 

5 

1 

1 

2 

2 

2 

?, 

21 

10-14  .... 
15-19  
20-24 

2 

3 

9 

3 
4 
^ 

5 

1 

3 

9 

4 
4 

"2 

1 
1 

7 

1 

i 

4 
8 
7 

*3 

1 

2 

1 

i 

1 

1 

1 
4 

4 
3 
6 

2 
2 

7 

1 

4 

7 

•  28 
31 
54 

25-29  
30-34 

2 

3 
1 

2 
1 

i 

2 

8 
2 

3 
2 

5 

(i 
4 

1 

1 

3 

9 

2 

?, 

37 
16 

35-39 

1 

i 

3 

3 

8 

40-44 

45-49 

50- 

TABLE  '31 — CONTINUED 


Berendo  I. 

Me  Kinley  1. 

| 
x: 

1 

I 

sj 

'-"I 

i 

1 

x 

o 
re 

•  -~ 

^-H 

1 

<; 

^ 
| 

£ 
e 

^ 

e 
K 

a 

^ 

=: 
_c 
"&-. 
_=: 

J 

~ 

5: 
^ 

Q 

Lomita 

Owensmoutk  H. 

55 
5 

5 

^5 

~5 
i 

^ 

^ 

•-t 

i 

j 

1 

Size  of 
Class 

Latin 

0-  4.  .  . 

2 

I 

I 

I 

2 

4 

i 

12 

5-9  

3 

3 

I 

3 

I 

4 

I 

i 

2 

2 

5 

1 

27 

l^-U  

3 

I 

I 

1 

2 

I 

1 

i 

I 

I 

2 

2 

17 

15-W  

I 

I 

} 

2 

I 

I 

I 

4 

0 

2 

19 

20-24  

1 

2 

1 

2 

2 

7 

5 

20 

25-2Q  

I 

1 

'2 

'•> 

0 

9 

23 

30-34  

1 

I 

2 

4 

8 

35-39  

40-44  

45-49  

50-  

Drawing 


0-  4 

1 

q 

1 

9, 

2 

? 

1 

18 

5-9  
10-14  
15-19  
20-24  
25-29  ....... 
30-34  
35-39  
40-44 

4 
'2 
4 

(i 
3 
6 
2 
2 
\ 
2 

3 

2 
3 
6 
1 

i 

i 

3 

3 
3 

2 

2 

3 
2 
4 

4 
1 

7 
5 

2 

'2 
4 

4 

1 

3 
1 
2 

7 
6 
8 
2 

6 

4 

1 
2 

3 
1 
3 
2 

~2 

] 
2 

1 

4 

i 

2 

1 
9 

19 
19 
1 

8 
(i 
5 
2 

10 
8 
9 
13 
14 
4 

3 

2 
10 
6 
2 

44 
46 
66 
68 
63 
14 
4 
9 

45-49 

p. 

5 

50-  

Music  (General) 


0-  4.  . 

2 

1 

?: 

3 

1 

1 

1 

11 

5-9  

?, 

4 

2 

7 

? 

1 

3 

21 

10-14  
15-19  
20-24  
25-29  

1 

1 
2 
1 

2 
'3 

1 

3 
1 

'2 
2 

1 

1 

1 
1 

3 

i 

2 

1 

1 
1 
1 

i 

1 
3 

2 
3 

6 
3 

3 
5 

3 
1 

v> 

16 
18 
12 
20 

30-34  

1 

1 

?, 

1 

3 

1 

1 

4 

14 

35-39  
40-44  
45-49  

50-  

1 
2 

2 
2 

2 
2 

2 

1 
1 

?, 

1 
1 

1 
2 

3 
1 

12 
10 
2 
2 

116 


TABLE  31 — CONTINUED 


^ 

d 

^ 

^ 

^ 

^•s 

^ 

5: 

^ 

^ 

."* 

• 

< 

^ 

0 

"%J 

«S 

"-•I 

^ 

•S 

»s 

•^ 

^ 

^ 
^ 

^ 

-si 

| 

5 

^ 

53 

5; 

| 

Me  Kin  ley 

1 
QG 

-f- 

Sentous  I. 

| 

3 

~S 

1 

1 
x 

| 

i 
| 

Gardena  I 

Wilmington 

kS 

Lomita 

Owensmoul 

a 

1 

-*H 

s 
e 

V2 

Manual  A 

^ 

] 

Hollywood 

2 

Size  of 
Class 

Music  (Chorus) 

0-4  

1 

1 

2 

5-  9  

10-14  

1 

1 

15-19  

1 

1 

1 

1 

1 

1 

2 

8 

20-24  

1 

9 

6 

25-29  

1 

1 

1 

3 

4 

30-34  

1 

3 

1 

1 

5 

35-39  

1 

1 

1 

2 

5 

40-44  

1 

1 

45-49  

9 

•2 

50-  

1 

•• 

4 

2 

2 

9 

M  u  .s-  ic  ( 0  rehear  a ) 


0-  4.  . 

1 

2 

3 

1 

1 

1 

9 

5-9  

1 

3 

1 

1 

1 

7 

10-14  

1 

1 

1 

3 

15-19  

20-24  
2.5-29  

2 

\ 

1 

1 

1 

3 
3 

30-34  

1 

1 

35-39  

40-44  

1 

1 

45-49  

50-  

•• 

Bcckkeeping 


0-  4.  . 

?, 

1 

2 

5-9  

2 

9, 

2 

? 

1 

1 

1 

1 

V, 

1 

15 

10-14  

1 

3 

1 

2 

1 

2 

2 

1 

2 

1 

3 

2 

21 

15-19  

7 

3 

1 

2 

2 

2 

1 

2 

3 

2 

2 

1 

1 

2 

31 

20-24  

1 

1 

1 

1 

I 

3 

1 

2 

3 

2 

1 

17 

25-29  

1 

1 

I 

1 

3 

1 

5 

4 

17 

30-34  

4 

2 

6 

35-39  .... 

1 

1 

2 

4 

40-44.  .  .. 

45-49  

1 

1 

50-  

J17 


TABLE  31 — CONTINUED 


£2 

83 

gj 

5 

^ 

£3 

£2 

^ 

^ 

• 

^ 

£3 

sj 

^ 

=^ 

—  i 

^; 

K^ 

% 

S 

S3 

•N 

^ 

-§ 

* 

^ 

33 

£2 

^ 

a» 

* 

^s 

* 

^ 

_£ 

s 

§ 

& 

15 

5 

2: 

^ 

^ 

a: 

1 

Berendo 

M  c  Kinlt 

5; 

Sentous 

I 

5" 
aq 

I 

| 

Lincoln 

= 
x: 

Gardena 

Wilminq 

2 

s 
i— 

i 

Owensmc 

B 
c 
x: 

^W  anual 

] 

5 

"o 

3 
1 

Size  of 
Class 

Stenography 

0-  4.  . 

2 

1 

a 

1 

5 

2 

1 

1 

16 

5-9  

1 

1 

I 

2 

2 

2 

1 

1 

11 

10-14  

i 

2 

2 

2 

1 

1 

i 

i 

i 

2 

2 

16 

15nl9 

3 

1 

1 

i 

1 

4 

2 

2 

3 

3 

5 

1 

27 

20-24!  i 

i 

4 

2 

1 

3 

1 

1 

g 

16 

25-29  .  . 

1 

2 

5 

2 

10 

30-34  

1 

1 

1 

1 

4 

35-39  

2 

1 

3 

40-44  

1 

1 

45-49  

50-.  . 

Typewriting 


0-  4 

1 

1 

i 

1 

4 

5-  9. 

1 

1 

1 

i 

1 

1 

1 

7 

10-14.  .  .. 
15-19  
20-24  
25-29  
30-34  
35-39 

2 
1 

'4 

1 
1 

2 

1 
3 

1 
2 

3 
2 

i 

i 

3 
4 

1 

1 

2 
2 

1 

3 

1 
1 

'3 
4 

2 

13 
19 
12 
4 
2 
3 

40-44  
45-49  
50-  

1 

1 

Cookery 


0-  4.  . 
5-  9 

1 

9 

}  0 

2 

2 

2 

2 

2 

2 

9 

2 

9 

6 
25 

10-14  
15-19  
20-24  
25-29  

2 
2 
2 

2 

7 

'6 
2 

2 
2 
2 

2 
4 

'2 
1 

6 

4 
2 

'2 

4 
2 

2 

1 

1 

7 
6 

2 

2 

1 
5 
2 

2 

2 
(i 

24 
47 
24 

2 

30-34. 

35-39  
40-44  . 

45-49  

50-  

•• 

118 


TABLE  31 — CONTINUED 


si 

J 

* 

^ 

J 

^ 

^ 

^ 

^5 

« 

5 

• 

.• 

I* 

^ 

^^ 

^ 

c 

y^ 

*-^ 

^J 

^ 

H 

'"*< 

T* 

'  "• 

-^ 

^ 

"^ 

..^ 

^ 

Berendo  I 

Me  Kinley 

1 

1 

C 

c' 

1 

£ 

H 

| 
§ 

*<-i 

K} 

o 

^ 

s 

Gardena  I 

C 

t- 

•  ^ 

1 

2 

1 

Owenftmou 

^ 
I 

Manual  A 

* 

1 

Hollywood 

I 

Size  of 
Class 

Sewing 

0-  4.  . 
5-9  
10-14 

'2 
4 
] 
1 

4 

4 
4 

1 

1 
1 
4 
4 

3 
2 
2 

2 

3 
2 

2 
3 
1 

3 

7 
3 
3 

6 

2 
2 

3 

4 

7 
7 
2 

1 

6 
1 
1 
2 

2 

2 
3 
3 

(5 
1 

2 
2 

2 

4 

'2 
2 

2 

7 
8 
1 

'2 
4 

1 
5 

7 
8 

1 

9 
4 

18 
22 
35 
71 
40 
12 
3 
1 

1&-19  
20-24:  
25-29  
30-34  
35-39  
40-44  
45-49  
50-.  .  .  . 

Agriculture 


0-  4.  . 
5-9  
10-14  
15-19  
20-24  

5 

3 

3 
1 

5 

i 

7 
1 

0 
6 
10 

0 

2 
1 

1 

1 
2 
2 

1 
1 

1 

29 
15 
12 
9 

25-29 

30-34 

35-39  
40-44  
45-49 

50-  



Manual  and  Industrial  Arts 


0-  4.  . 

4 

1 

2 

3 

1 

1 

2 

14 

5-  9  

1 

4 

1 

6 

1 

10 

1 

8 

5 

'2 

1 

4 

7 

i 

'fi 

57 

10-14  

2 

11 

3 

2 

4 

6 

4 

2 

12 

1 

1 

2 

IS 

11 

3 

82 

15-19  

4 

7 

6 

2 

(i 

10 

() 

6 

7 

4 

3 

12 

'5 

r 

S 

91 

20-24  

2 

5 

2 

7 

4 

2 

5 

4 

2 

2 

2 

IS 

3 

55 

25-29  

4 

2 

1 

2 

1 

10 

4 

24 

30-34  

35-39  

i 

1 

40-44  

45-49 

50-  

•• 

119 


TABLE  31— CONTINUED 


^ 

o 

^ 

== 

fe; 

^ 

^ 

•^ 

•^ 

-~- 

*** 

"^ 

^ 

d 

*% 

..^ 

"^ 

.. 

i  —  ^ 

~^ 

^ 

o 

• 

'-H 

"•^ 

*>^ 

°^ 

• 

~~^ 

*~^ 

•8 

a 

^ 

"**, 

^< 

~s 

i 

^ 

•-* 

s? 

> 

^ 

^ 

K^ 

8 

^ 

_c 

g 

"5 

a 
e 

-^ 

w 

J=^ 

~^ 

tierendo 

Me  A'm/i 

y; 

Sentous 

^ 

1 

-s: 
1 

•  ~- 

_ 

Lincoln 

J 

e 
v: 

Garden  a 

"t 

~ 

e 
a 

'i 

Owensmc 

^. 

^ 
~^ 

e 

C3 

a«3 

Manual 

] 

^ 

J 

"c 

s 

1 

Size  o) 
Class 

Athletics 

0-  4.  . 

5-9  

I 

1 

2 

10-14  

'2 

i 

3 

6 

15-19  

i 

3 

4 

20-24  

4 

3 

7 

25-29  

i 

1 

30-34  

1 

1 

3.5-39  

i 

I 

40-44  

i 

i 

2 

4.5-49  

50-  

Physical    Training 


0-  4.  . 

1 

1 

1 

1 

4 

5-9  

1 

1 

2 

1 

5 

10-14  

1 

3 

1 

2 

1 

3 

5 

2 

1 

2 

2 

1 

1 

25 

15-19  '. 

1 

'4 

2 

5 

1 

3 

3 

3 

2 

1 

2 

3 

3 

2 

35 

20-24  

3 

4 

2 

1 

5 

1 

2 

1 

3 

3 

1 

4 

30 

25-29  

1 

3 

2 

1 

1 

1 

4 

4 

2 

19 

30-34.  .  . 

'2 

'2 

I 

'2 

1 

1 

2 

1 

2 

2 

3 

2 

1 

22 

35-39  

1 

I 

2 

1 

3 

2 

1 

8 

19 

40-44  

2 

1 

i 

2 

2 

4 

] 

1 

14 

45-49  

1 

2 

2 

2 

8 

50-  

'2 

1 

5 

'5 

2 

'2 

17 

Physiology  and    Hygiene 


0-  4  .  . 

5-9  

1 

1 

1 

1 

4 

10-14  
15-19  

2 

1 

\ 

} 

2 

1 

2 

1 

4 

6 
9 

20-24  
25-29  
30-34  

1 
\ 

1 
3 

1 

2 

2 

] 

2 

1 

1 

2 
2 

3 
1 
1 

1 
2 

1 

10 
8 
11 

35-39.  .  .. 
40-44.  .  .. 
45-49  .  . 

1 
1 

1 
1 

2 

1 

1 
1 

1 
1 

5 
4 
2 

50-  

TABLE  31 — CONTINUED 


Berendo  I. 

McKinley  I.  - 

| 

1 

^c 

1 

•Jt 

1 

•• 

=: 
•  •>. 

1 

_S 

153 
a 

1 

;5 

•S 
^ 
•-s 

e 

_c 

"&. 

'1 

5 

Lomita 

Owensmouth  H. 

San  Fernando  H. 

^ 

-r 
S 

a 

33 

—  • 

^ 

Hollywood  H.  &J.C 

1 

Size  of 
Class 

Supervision  of  Study   Hall 

0-  4.  . 
5-9  
10-14  

20-24  !  ' 
25-29  
30-34  
35-39  

'2 
3 
2 
6 

7 
4 

i 

2 
1 
3 
4 
4 
13 
4 
2 
1 

1 
1 
1 
7 
5 
3 
6 
6 
3 

13 

3 
4 

9 
10 
7 
10 
4 
3 

1 

i 

'7 

2 

e 

2 

2 

1 
3 
2 

4 

8 
10 
4 

2 
2 

2 
2 
5 
5 
6 
4 

19 
22 
16 
21 
36 
40 
57 
38 
11 
6 
26 

1 
1 

1 

i 

15 

'2 

1 

40-44  
45-49.  . 
50-  

2 

5 

4 

Table  30  shows  that  the  median  size  of  classes  varied  from  5 
to  9  in  orchestra  work,  from  25  to  29  in  arithmetic,  geography, 
history  and  chorus  music.  This  variation  is  but  natural  in 
view  of  the  fact  that  relatively  few  students  can  be  cared  for  at 
a  single  time  in  orchestra  work,  and  also  relatively  few  students 
care  to  take  this  type  of  work  as  compared  with  the  large  number 
of  studentswho  enroll  in  classes  in  the  other  subjects. 

In  arithmetic,  which  includes  household  arithmetic,  the 
Berendo  Street  Intermediate  School  operated  two  classes  of 
fifteen  to  nineteen  students;  three  from  twenty  to  twenty-four; 
one  to  thirty-four  students;  t\vo  to  forty-four  students  and  one 
forty-five  to  forty-nine  students.  Boyle  Heights  and  San  Pedro 
each  operate  one  class  with  a  registration  of  four  or  less.  A 
reference  to  the  right-hand  column  of  the  table  indicates  that 
the  city  has  operated  two  arithmetic  classes  with  four  or  less 
students;  one  with  five  to  nine  students;  seven  with  ten  to 
fourteen  students,  etc. 

As  it  has  been  the  announced  policy  to  discourage  classes  en- 
rolling fewer  than  fifteen  students,  it  is  somewhat  surprising  to 
find  the  large  number  of  classes  enrolling  fewer  than  that  number. 
These  small  classes  are  found  not  only  in  the  case  of  cooking, 
manual  training,  sewing  and  similar  subjects,  but  they  are  also 

121 


found  in  English,  mathematics  and  history  courses.  Inasmuch 
as  certain  subjects  are  required,  such  as  English,  it  seems  highly 
probable  that  an  administrative  re-organization  might  be  ef- 
fected by  the  principals,  making  it  possible  to  increase  the  size 
of  the  small  classes  and  at  the  same  time  reduce  the  size  of  some 
of  the  larger  classes. 

It  is  to  be  expected  that  there  will  be  small  classes  in  the  small 
outlying  districts;  it  is  a  fact  also  that  there  are  a  good  many 
small  classes  in  the  larger  intermediate  schools.  In  analyzing 
these  data  one  cannot  help  feeling  that  there  are  great  possibili- 
ties for  improving  this  condition  by  reorganizing  these  schools 
in  such  a  way  as  to  eliminate  a  large  number  of  classes  with 
low  enrollment.  This  does  not  necessarily  mean  that  small 
classes  should  be  arbitrarily  cut  out  without  giving  due  considera- 
tion to  the  points  at  issue  in  each  particular  case.  Nevertheless, 
it  will  become  imperative,  sooner  or  later,  to  have  some  limit 
fixed  in  regard  to  the  minimum  size  of  classes.  This  will  be 
found  desirable  not  only  from  the  standpoint  of  economy  but 
also  from  the  standpoint  of  the  pupil.  There  is  surely  a  lower 
limit  for  the  size  of  classes  beyond  which  the  opportunities  for 
reciprocal  stimulation  on  the  part  of  the  children  are  reduced 
to  the  minimum. 

Further  analysis  of  the  reports  indicates  that  there  are  many 
instances  where  teachers  have  organized  small  classes  in  ad- 
dition to  their  regularly  assigned  work.  For  example,  a  standard 
number  of  "periods"  per  day  in  the  intermediate  schools  is  6. 
Not  a  few  teachers  were  engaged  for  7  periods.  For  the  most 
part,  these  extra  periods  were  devoted  to  individual  help  and 
reported  under  terms  of  "Individual  help,"  "Coaching  and 
Latin,"  "Hall  and  Yard  duty,"  "Office  work,"  "Chorus,"  etc. 

These  evidences  of  a  disposition  on  the  part  of  teacher  to 
care  voluntarily  for  extra  groups  are  in  every  way  commendable 
and  to  be  encouraged.  Los  Angeles  is  fortunate  in  having  so 
many  teachers  in  the  high  and  intermediate  schools  who  do 
this. 

From  the  nature  of  the  data  available,  your  committee  has 
been  unable  to  sharply  differentiate  all  of  these  classes  of  extra 
activities  from  the  regularly  assigned  duties.  This  situation 
emphasizes  the  need  which  your  committee  expressed  elsewhere 
in  this  report  of  an  accurate  system  of  consistent  records  that 
will  make  it  possible  to  explain  all  of  the  factors  involved.  A 
Division  of  Research  should  organize  inquiries  and  establish 
facts  relative  to  these  conditions.  Many  of  these  classes  have 
been  established  in  response  to  the  desires  of  children  for  a  wide 
range  of  electives.  Many  of  them  are  necessary  because  of  the 
small  enrollment  in  certain  schools.  Nevertheless,  the  fact  that 

122 


there  are  150  classes  in  English  registering  fewer  than  15  students 
indicates  that  other  issues  are  involved  than  elective  courses  and 
the  policy  of  maintaining  high  schools  in  the  outlying  districts. 

Your  Committee  does  not  pretend  to  pass  judgment  on  this 
method  of  organization.  If  it  is  found  that  fifteen  is  an  unsatis- 
factory minimum  another  standard  should  be  established. 
After  this  standard  is  set  a  somewhat  rigid  enforcement  of  the 
number  should  be  required  in  all  of  the  larger  schools.  So  long  as 
the  schools  are  continued  in  the  outlying  districts  it  will  be 
necessary  to  maintain  small  classes,  unless  a  radical  change  is 
made  in  the  curriculum  of  such  schools.  Even  then  a  certain 
number  of  small  classes  would  be  inevitable. 

However,  it  is  recommended  that  a  Bureau  of  Research  be 
charged  with  the  responsibility  of  the  evaluation  of  this  policy 
with  the  hope  of  ultimately  establishing  optimum  standards  for 
size  of  classes  in  the  different  subjects.  Other  discussions  of  the 
.need  for  these  standards  appear  elsewhere  in  this  report. 

This  analysis  is  not  to  be  considered  as  a  criticism  of  the 
administration  of  education  in  Los  Angeles.  It  is  simply  a 
statement  of  facts  which  indicates  an  unusual  situation  and 
should  be  continued  or  changed  only  after  a  most  elaborate 
analysis  of  conditions.  As  it  stands,  it  challenges  the  attention 
of  the  educational  administration. 

The  following  form  was  used  in  gathering  this  information: 


123 


TABLE  32:     SHOWING  FORM   USED  BY  THE  BOARD  OF  EDUCATION  IN   RE- 
QUESTING TEACHERS  TO  STATE  SCHEDULE  OF  WORK  OF  EACH  FOR 
SCHOOL  WEEK  ENDING  JANUARY  28,  1916 


//  the  class 

was  in 

If  a  por- 
tion   of    the 

charge  of 
another 

class  are 

teacher, 

Give 

absent 

state  hoir 

time 

\o.     of 

state    when 

your  time 

in 

Class 

pupils  in 

they  were, 

was   em- 

Periods 

min- 

taught by 

Subject 

actual  at- 

how  em- 

ployed.     If 

utes 
each 

whom 

tendance 
each 

ployed, 
and  in 

in  charge 
of  pupils 

per- 

period 

charge  of 

state     No. 

iod 

what 

of  pupils 

teacher 

and  nature 

of  work 

done 

Monday 

1st  Per. 

20 

John  Doe 

Classroom 

study  

32 

2nd 

43 

«        « 

A7  History 

24 

3rd 

43 

«        « 

B8  English 

23 

4th 

43 

c<            « 

A9  English 

11 

5th 

43 

c<           « 

Lunch  . 

Lunch 

6th       " 

43 

« 

Supervised 

girls  yard 

229  apprx. 

7th 

43 

«       « 

Corrected 

A9  book  rp. 

Sth       " 

42 

Supervised 
study. 
Helps  in 
Algebra 

41 

i  Mechani- 
c*al  drawing 
with  Jane 
Dr»p 

English 

L/oe 

9th 

43 

"        " 

A7  History 

36 

10th        • 

37 

«          « 

A7  History 

28 

llth 

5 

<« 

Roll  Call  .  . 

32 



12th 

13th 

14th 

15th 

Thj  schedule  called  for  similar  information  for  each  day  of   that  week. 


124 


VII 
JUNIOR  COLLEGES 

1.     DISTRIBUTION  IN  Los  ANGELES 

At  the  present  time  the  records  indicate  that  junior  colleges 
are  in  operation  in  three  high  schools,  viz:  Los  Angeles,  Poly- 
technic and  Hollywood.  In  addition  to  these  recognized  junior 
colleges,  post  graduate  courses  are  offered  in  seven  other  schools. 
The  Auditor's  office  is  unable  to  tell  the  per  capita  cost  of  instruc- 
tion in  these  schools. 

As  the  enrollment  in  junior  college  and  post  graduate  students 
is  large,  it  is  evident  that  the  parents  of  the  children  in  these  high 
schools  are  anxious  to  have  this  type  of  work  offered.  Indeed, 
in  one  high  school,  some  work  is  offered  in  the  third  year  college 
work.  In  all  probability,  in  at  least  two  of  the  high  schools,  the 
community  will  ultimately  demand  a  three  or  four  year  course. 
This  is  in  line  with  the  development  elsewhere.  The  Board 
should  recognize  very  clearly  that  they  will  have  to  face,  within 
a  comparatively  short  time,  a  demand  for  a  four-year  collegiate 
course.  Cincinnati  and  New  York  City  maintain  city  colleges. 

The  students  in  the  Polytechnic  High  School  who  are  taking 
junior  college  work  seem  to  be  anxious  to  get  out  to  work  as  soon 
as  they  have  completed  the  two-year  course.  The  principal  of 
this  school  reported  that  in  his  judgment  there  will  not  be  a 
strong  demand  for  an  institution  of  this  type  of  work  beyond 
the  present  two-year  standard.  The  principals  of  some  of  the 
other  schools  have  already  felt  pressure  from  their  patrons 
demanding  more  college  training. 

In  general,  it  is  our  judgment  that  additional  junior  colleges 
should  not  be  established.  Rather,  an  attempt  should  be  made 
to  co-ordinate  the  junior  course  already  offered  in  the  different 
high  schools  into  one  strong  junior  college.  The  distance  is  to  be 
reckoned  with,  but,  in  view  of  the  age  of  the  student,  and  the 
facilities  of  transportation  which  the  city  of  Los  Angeles  affords, 
this  should  be  no  barrier. 

The  isolation  of  the  college  work  within  a  single  institution 
would  make  it  possible  for  the  institution  to  foster  a  certain 
amount  of  college  spirit  and  group  ideals.  The  establishment  of 
the  office  of  Dean  of  the  junior  college  is  an  expression  of  this 
need  on  the  part  of  the  high  school  at  the  present  time. 

125 


2.     GROWTH  IN  ENROLLMELT 

TABLE  33:     SHOWING  THE  GROWTH  IN  ENROLLMENT  OF  JUNIOR  COLLEGES 
IN  THE  Los  ANGELES  HIGH  SCHOOLS 
TOTAL  ENROLLMENT 


1912-13 


1913-14 


1914-15 


Hollywood  High 61  82 

Los  Angeles  High 165,  ^   209  302 

Polytechnic  High Counted  as  P.  G.'s. 

AVERAGE  DAILY  ATTENDANCE 

1912-13  1913-14          1914-15 


Hollywood  High ...  43  65  Apprx. 

Los  Angeles  High 97  158  250 

Polytechnic  High Counted  as  P.  G.'s 

It  is  interesting  to  note  that  compared  with  total  enrollment 
the  average  daily  attendance  is  relatively  low  for  these  students. 

In  addition  to  student  registration  in  the  junior  colleges,  it 
has  been  the  practice  to  register  certain  students  as  post  graduate 
students.  The  table  below  shows  this  enrollment  for  the  past 
few  years. 

TABLE  34:     SHOWING  GROWTH  IN  ENROLLMENT  IN  NUMBER  OF  POST 
GRADUATE  STUDENTS  IN  THE  Los  ANGELES  HIGH  SCHOOLS 

TOTAL    ENROLLMENT 


1910-11 

1911-12 

1912-13       1913-14 

1914-15 

Gardena  High. 

3 

Hollywood  High.  .  .  . 
Lincoln  High  

4 

16 

51 

15 

Los  Angeles  High.  .  . 
Manual  Arts  High  .  . 

Polytechnic  High  .  .  . 
San  Fernando  .  . 

46 

55 
1 

51 
91 

130 
3 

112 
(only  from  Feb 
160 

7 

151 

.  to  June) 
172 
5 

AVERAGE    DAILY    ATTENDANCE 


1910-11       1911-12       1912-13       1913-14       1914-15 


Gardena  Agri.  High.  *    

Hollywood  High 2 

Los  Angeles  High. .  .  18 

Lincoln  High 

Manual  Arts  High 


Polytechnic  High .  .  . 
San  Fernando  High. 


33 


7 
21 


51 


30 


(Approx.) 


11 

4*  95 

(only  from  Feb.  to  June) 
64  74  70 

1  4  3 

Approx. 

*No  record  kept  at  the  schools;  have  always  been  counteH  as  12th-year  pupils   in  reports   to 
state. 

126 


3.     RECOMMENDATIONS 
The  Committee  recommends : 

1:  That  no  more  junior  colleges  be  established  at  the. 
present  time. 

2:  That  the  possibility  of  co-ordination  of  all  the  junior 
colleges  into  one  city  college  is  worthy  of  serious 
consideration  on  the  part  of  the  Board. 


127 


VIII 

EVENING  ELEMENTARY  SCHOOLS 

1.     SCOPE  OF  ACTIVITIES 

The  first  evening  schools  were  established  for  those  who  had 
been  denied  or  had  neglected  opportunites  for  elementary 
instruction  during  earlier  years.  The  next  development  was 
the  establishment  of  evening  high  schools  which  afforded  am- 
bitious and  studious  men  and  women  means  of  increasing  their 
knowledge,  skill  and  earning  capacity.  The  third  step  in  even- 
ing instruction  was  necessitated  by  the  rapidly  growing  foreign 
population  in  American  communities.  These  schools  were 
originally  conceived  in  a  philanthropic  spirit.  It  was  not  long, 
however,  before  thinking  citizens  perceived  that  they  were  as 
necessary  for  the  community  as  for  the  foreigner.  The  tremen- 
dous problem  presented  by  the  successive  waves  of  immigration, 
made  up  of  those  who  were  strangers  not  only  to  our  language, 
but  to  our  social  and  political  institutions  as  well,  compelled 
some  method  of  solution.  It  was  natural  that  this  task  should 
be  assigned  to  the  schools,  which,  however  imperfectly,  have  yet 
contributed  more  to  the  solution  of  this  problem  than  any  other 
agency,  public  or  private. 

Since  the  establishment  of  these  activities,  many  others  have 
been  added.  Los  Angeles  in  this  respect  resembles  other  Amer- 
ican cities,  large  and  small. 

The  multiplication  of  these  activities  has  been  furthered  by 
the  disposition  to  use  the  school  plant  to  the  maximum.  It  has 
seemed  a  proper  and  obvious  thing  that  buildings  which  so 
peculiarly  belong  to  the  people  should  be  open  to  it  to  the  greatest 
possible  extent.  The  sentiment  finds  expression  in  the  present 
State  Law. 

Therefore  it  happens  that  in  public  schools  almost  every  type 
of  evening  activity  has  been  developed.  Shops,  kitchens,  sewing 
rooms,  auditoriums,  gymnasiums,  playgrounds,  have  all  been 
freely  employed. 

One  problem  that  has  arisen  in  the  development  of  the  evening 
school  activities  is  that  of  proper  organization.  For  a  long  time 
evening  activities  escaped  the  usual  demands  imposed  on  the 
organization  of  the  day  schools.  The  care  and  thought  given  to 
the  certification  and  training  of  teachers,  the  need  of  making 
accurate  records  and  reports,  the  necessity  of  checking  the  rela- 
tive values  of  different  types  of  work  performed — all  these,  as  a 
rule,  have  been  disregarded  or  perfunctorily  treated  in  evening 
school  organization.  Evening  instruction  was  conceived,  and 
in  many  places  is  yet  conceived,  as  a  sort  of  unregulated  sub- 
sidiary type  of  educational  effort,  needing  little  real  supervision. 

128 


2.     THE  PROBLEM  OF  COST 

The  second  problem  is  one  of  cost.  So  long  as  evening  schools 
were  few  in  number,  or  were  limited,  they  were  considered  pleas- 
ing ventures  with  a  certain  sentimental  value.  Now  that  they 
have  been  extended  to  their  present  size  and  number,  the  cost  of 
financing  them  has  become  noticeable  and  in  some  cases  heavy. 
The  rapid  increase  in  cost  in  Los  Angeles  is  shown  in  Table  6. 
It  is  probably  true  that  if  the  money  is  wisely  expended,  even  if 
the  amount  be  large,  the  educational  dividend  will  be  corres- 
pondingly high. 

No  one  will  question  that  even  a  poorly  organized  evening 
school  does  considerable  good.  No  one  familiar  with  the  facts 
can  doubt  that  the  conduct  of  even  well  organized  evening  schools 
involves  a  large  waste  of  effort  and  money,  due  to  irregular  and 
infrequent  attendance. 

Furthermore,  the  indefinite  possibilities  of  extension,  especial- 
ly when  the  school  is  in  charge  of  an  aggressive  principal,  do 
multiply  cost.  It  is  a  correct  attitude  for  a  principal  to  assume 
when  he  states  that  he  wishes  to  see  his  evening  school  give 
maximum  service.  A  school  can  become  a  convenient  branch 
for  a  city  library;  therefore  a  teacher  is  selected  as  a  branch 
librarian.  A  group  of  young  people  need  recreation  under  direct 
and  proper  conditions;  therefore  a  social  club  with  a  leader  is 
selected.  Some  parents  cannot  leave  their  little  ones  at  home; 
therefore  a  nursery  is  started.  Adolescent  boys  are  better  off 
in  a  playground  under  competent  leadership ;  therefore  a  gymnas- 
tic teacher  or  playground  leader  should  be  added.  Children 
in  miserable  homes  should  have  a  place  to  play  games,  or  prac- 
tise primary  manual  arts;  therefore  a  teacher  is  appointed  to 
supervise  the  activity.  It  is  not  unnatural  that  the  ease  with 
which  any  sort  of  activity  can  be  put  into  operation  may  result 
in  establishing  facilities  not  always  worth  continuing. 

No  argument  is  needed  to  prove  that  many  of  these  activities 
are  beneficial.  They  may  yet  become  the  most  valuable  features 
of  the  evening  school. 

Because  this  multiplication  of  activities  increases  cost  rapidly, 
waste  must  be  reduced  and  extravagance  avoided.  First,  a  city 
should  pay  for  instruction  for  those  who  need  instruction,  not 
as  a  matter  of  philanthropy,  or  sentiment,  but  for  the  salvation 
of  the  state.  Secondly,  a  city  should  open  the  school  to  the 
neighborhood,  not  only  because  the  law  permits  it,  but  be- 
cause the  development  of  community  sentiment  is  good  for  the 
state.  The  law  states  that  these  communities  must  be  super- 
vised. If  the  city  must  pay  for  this  supervision — and  that  seems 
to  be  the  legal  condition — then  the  Board  must  have  a  policy. 

129 


A  budget  should  be  prepared  and  the  demands  set  forth.  There 
should  be  discretion  shown  in  the  method  of  expenditure  so 
that  whatever  gives  the  greatest  values  should  have  the  widest 
extension.  It  would  be  well,  no  doubt,  if  a  department  of 
education  could  do  everything  everywhere.  The  facts  are,  it 
cannot.  Then  it  should,  through  the  suggestion  of  its  super- 
visory officers,  discriminate  between  the  various  activities  so 
that  those  most  generously  attended  will  receive  more  than  a 
meagre  allowance. 

The  application  of  these  principles  may  be  discussed  with 
reference  to  each  of  the  different  departments  of  the  Los  Angeles 
evening  elementary  schools. 

These  may  be  divided  as  follows: 

ELEMENTARY  INSTRUCTIONS  FOR  ENGLISH  SPEAKING  PEOPLE 
OF  NEGLECTED  EDUCATION  OR  FOR  YOUNG  PEOPLE  WITH  WORK 
PERMITS. 

INSTRUCTION  IN  ENGLISH  TO  ENGLISH  SPEAKING  FOREIGNERS 
AND  TO  THOSE  PREPARING  TO  TAKE  CITIZEN  PAPERS  (FOREIGN 
AND  CITIZEN  CLASSES.) 

CLASSES  IN  COMMERCIAL  SUBJECTS. 

CLASSES  IN  MANUAL  AND  DOMESTIC  ARTS,  SHOP  AND  COOKING 
AND  WEAVING. 

CLASSES  FOR  PHYSICAL  DEVELOPMELT;  GYMNASIUMS  AND 
PLAYGROUDS. 

CLASSES  FOR  SOCIAL  RECREATION,  GAMES,  DANCING. 

3.     ELEMENTARY  INSTRUCTION  FOR  ENGLISH  SPEAKING  PUPILS 

Fourteen  classes  were  observed  during  a  fortnight.  The 
difficulty  of  grading  pupils  requires  a  method  of  grouping  and  of 
instruction  largely  individual.  There  was  a  great  deal  of  busy 
work,  much  of  it  of  a  character  that  would  occupy  the  time  of 
pupils  rather  than  contribute  to  their  progress.  The  teaching 
of  these  pupils  in  the  elementary  grades  was  generally  more 
competent  than  that  shown  in  the  teaching  of  foreigners;  the 
problem  is  better  understood  by  teachers. 

Many  of  the  "work  permit"  pupils  were  obviously  too  fatigued 
to  give  any  sustained  attention,  but  that  is  a  condition  teachers 
cannot  control.  The  compulsory  attendance  of  children  in 
evening  classes  for  instruction  after  a  day  of  labor  is  not  in 
accord  with  the  best  current  opinion.  Much  of  the  legislation 
originally  adopted  was  initiated  by  an  excellent  philanthropic 
motive,  but  it  is  generally  condemned  as  unsuitable  for  children 
who  need  rest  and  rational  recreation  after  working  hours. 

So  long  as  the  state  requires  the  attendance  of  boys  and  girls 
under  16  at  evening  school,  the  city  can  exercise  no  dis- 

130 


cretion.  It  would  be  wise  if  California  would  enact  legislation 
similar  to  that  of  Wisconsin,  which  requires  that  such  persons 
when  employed  should  attend  school  a  minimum  number  of 
hours  per  week  between  8  A.  M.  and  6  P.  M.  If  compulsory 
legislation  of  this  kind  seems  inadvisable,  then  discretionary 
legislation  permitting  cities  to  require  day  attendance  for  a 
minimum  number  of  hours  per  week  in  day  schools  could  be 
substituted.  Such  permissive  legislation  has  been  adopted  in 
New  York  State. 

4.     THE  INSTRUCTION  OF  FOREIGNERS 
(a)     THOSE  LEARNING  ENGLISH 

Compared  with  the  mill  towns  of  New  England,  or  the  manu- 
facturing towns  of  Pennsylvania,  or  some  of  the  cities  of  the  East, 
it  cannot  be  said  that  Los  Angeles  has  a  formidable  foreign 
problem.  This,  however,  is  additional  reason  why  Los  Angeles 
should  provide  for  the  instruction  of  the  foreigners  it  now  has. 
Apparently  twenty  per  cent,  of  the  present  population  were  born 
in  countries  in  which  English  is  not  the  current  language.  It  is 
impossible  to  state  how  many  of  these  persons  cannot  speak 
English,  but  the  number  is  sufficient  to  require  attention.  The 
problem  should  be  met  now,  when  it  is  possible  to  do  so. 

Instruction  in  English,  though  of  primary  importance,  should 
not  constitute  the  whole  of  instruction.  Quite  apart  from  the 
preparation  involved  in  the  training  of  citizens  for  naturaliza- 
tion, a  course  for  foreigners  should  include  instruction  in  civics. 
This  means  not  only  knowledge  of  the  organization  of  our  national 
government,  but  also  of  local  conditions,  social  and  political. 
Whether  the  foreign  resident  be  a  citizen,  or  not,  it  is  neces- 
sary for  the  city  itself,  as  well  as  for  him,  that  he  understand 
what  the  city  requires  of  all  its  people  as  to  manners,  conditions 
of  living,  and  observance  of  laws  and  social  standards. 

Instruction  in  English  to  foreigners  is  a  highly  specialized 
process.  Normal  school  training  for  teachers  intending  to 
teach  in  the  elementary  grades  is  a  most  inadequate  preparation. 
Even  though  under  such  conditions  an  occasional  Normal 
graduate  will  develop  extraordinary  ability,  dependence  on  this 
fact  is  a  very  uncertain  method  of  providing  teachers. 

The  employment  of  day  school  teachers  in  evening  schools 
is  referred  to  elsewhere.  It  may  be  stated  now  that,  if  com- 
petent teachers  have  to  be  withdrawn  from  evening  schools  for 
reasan  however  good,  they  should  be  replaced  by  other  teachers 
equally  competent  or  more  competent. 

In  observing  the  actual  work  of  twenty-five  teachers  of  Eng- 
lish to  foreigners,  the  conclusion  has  been  reached  that  only  a 

131 


minority  of  the  teachers  were  familiar  with  the  technique  of 
the  work.  When  it  was  pointed  out  that  many  of  the  relations 
and  questions  were  too  difficult  or  highly  unsuitable,  the  answer 
of  four  teachers  was  that  the  foreigner  liked  something  hard — 
something  beyond  him,  and  unless  this  desire  was  satisfied  he 
would  not  stay.  Yet,  if  the  figures  of  attendance  be  counted,  it 
will  be  noted  that  there  is  abundant  evidence  that  the  majority 
of  the  pupils  had  already  departed. 

The  grading  was  poor,  although  that  condition  seemed  to  be 
the  result  of  the  very  small  attendance.  The  average  attend- 
ance of  the  classes  at  the  time  observed  was  less  than  ten.  This, 
of  course,  may  have  been  increased  at  some  other  time  during 
the  evening. 

There  are  at  present  no  facilities  in  Los  Angeles  for  instructing 
teachers  in  proper  methods  for  teaching  English  to  foreigners, 
although  such  methods  exist  and  may  be  definitely  demonstrated. 
The  Committee  recommends  that,  pending  some  other  organ- 
ization, the  five  most  successful  teachers  who  have  made  some 
study  of  the  subject  be  invited  to  start  normal  classes  for  ten 
successive  Saturday  evenings  for  those  who  intend  to  teach 
non-English  speaking  foreigners.  At  least  five  of  these  lessons 
should  be  demonstration  lessons  with  actual  classes.  Attendance 
might  be  required  as  a  condition  of  appointment,  or  it  could  be 
voluntary.  The  cost  of  these  normal  classes  at  $5.00  per  teacher 
per  evening  would  not  be  more  than  $250  for  the  year. 

The  committee  also  recommends,  when  sufficient  time  shall 
have  elapsed,  that  teachers  of  foreigners  be  selected  after  special 
examinations  not  only  in  methods  but  in  civics,  and  the  method 
of  teaching  civics.  A  new  method  of  selection  like  this  cannot 
be  accomplished  immediately,  but  it  should  be  begun. 

(b)       THOSE    IN   CITIZENSHIP    CLASSES 

There  were  ten  citizenship  classes  in  session  in  the  elementary 
evening  schools.  They  were  made  up  of  foreigners  familiar 
with  English.  In  some  cases  the  classes  were  made  up  of  stud- 
ents preparing  for  the  final  examination  for  citizenship  papers. 

There  seems  to  be  unnecessary  duplication  of  this  special  type 
of  work  for  the  following  reasons:  in  the  Los  Angeles  Evening 
High  School  there  is  an  organized  plan  for  naturalization 
classes.  All  but  four  of  the  citizenship  classes  in  elementary 
schools  are  established  within  a  mile  of  the  high  school.  Their 
average  attendance  on  the  night  of  visitation  was  less  than  nine. 

The  fault  is  not  merely  one  of  unnecessary  duplication.  Dupli- 
cation in  this  case  is  bad  for  instruction.  In  the  Los  Angeles 
Evening  High  School  the  work  is  in  charge  of  a  teacher  especially 

132 


assigned  to  it,  on  an  -allowance  of  30  hours  per  week.  Ten 
hours  are  spent  on  teaching,  twenty  hours  in  day  assignments 
related  to  the  work  of  naturalization.  As  a  result  more  pupils 
are  taught,  and  probably  better  taught,  so  that  the  apparently 
increased  cost  at  the  time  of  the  visit  is  more  than  compensated 
for  by  increased  attendance.  It  would  be  better  if  so  much  of 
the  instruction  in  "citizenship"  as  involved  "Preparation  for 
naturalization"  in  the  elementary  evening  school  could  be 
centralized  in  fewer  schools  so  as  to  be  of  maximum  value  to 
those  \vho  attend.  The  argument  of  distance  between  homes 
and  school  does  not  seem  pertinent  when  the  residences  of  some 
of  those  who  now  attend  the  Los  Angeles  Evening  High  School 
course  is  considered.  This  committee  has  not  had  opportunity 
to  examine  the  character  of  work  done.  There  is  no  question 
that  the  Los  Angeles  Evening  High  School  center  was  well 
organized.  As  a  rule  the  evening  elementary  school  centers 
were  not. 

There  is  undoubtedly  a  place  in  the  elementary  evening  schools 
for  some  of  the  pupils  now  in  citizenship  classes.  The  work 
in  the  Los  Angeles  high  school  citizenship  classes  is  not  adapted 
to  them.  These  pupils  really  need  additional  instruction  in 
English  and  in  elementary  branches.  A  new  organization  should 
be  created  by  which  the  larger  number  of  foreigners  could  be 
distributed  in  as  many  schools  as  are  needed,  subject  to  con- 
ditions of  proper  grading.  The  smaller  number  should  be 
centered  in  fewer  schools  where  they  can  be  better  taught  and 
where  a  better  system  of  grading  can  be  worked  out.  A  course 
for  first  year  foreigners  is  a  different  thing  from  a  course  for 
foreigners  who  already  have  a  considerable  knowledge  of  English. 

Almost  the  only  conception  of  a  method  of  teaching  foreigners 
that  teachers  in  the  elementary  evening  schools  have  employed 
is  "individual  instruction".  Individual  instruction  is  itself 
an  excellent  thing,  but  it  should  not  be  employed  as  a  mere 
formula.  There  are  successful  methods  of  instruction  for 
foreigners  which  experience  has  discovered  and  which  are  psychol- 
ogically sound.  They  can  be  applied  to  larger  numbers  in  the 
early  part  of  the  year.  If  so  applied  there  would  probably  not 
be  such  a  tremendous  drop  in  attendance. 

5.     CLASSES  IN  COMMERCIAL  SUBJECTS 

There  were  six  of  these  classes  in  the  evening  schools.  They 
embrace  one  or  more  of  the  following  subjects:  book-keeping, 
penmanship,  typewriting,  stenography.  Three  of  the  classes 
had  a  satisfactory  attendance  of  from  15  to  16.  The  favorite 
subject  is  stenography.  In  this  subject  only  a  minority  of  the 
students  attended  long  enough  to  get  any  real  good  from  the 

133 


subject.  The  lack  of  an  adequate  record  of  evening  school 
activities  makes  it  impossible  to  state  what  benefit  accrues  to 
pupils  in  those  schools  where  commercial  subjects,  especially 
stenography,  are  taught.  The  teaching  was  competent  and  the 
students  who  remained  long  enough  were  undoubtedly  benefitted. 
Unless  distance  is  absolutely  prohibitive,  it  would  be  better  for 
the  students'  sake  to  center  such  activities  in  the  high  schools. 
If  distance  is  too  great,  a  definite  number  of  centers,  probably 
three,  could  be  established  and  proper  equipment  provided. 
At  the  present  time  in  some  of  the  evening  elementary  schools 
neither  the  furniture  nor  equipment  desirable  for  commercial 
instruction  is  available.  For  example,  the  number  of  typewrit- 
ers in  some  evening  schools  is  quite  insufficient.  If  collected 
and  placed  in  fewer  centers,  better  classes  could  be  organized. 
An  attempt  is  now  made  in  several  commercial  classes  to  teach 
several  commercial  subjects  in  a  class  by  groups,  apparently  to 
keep  up  a  sufficient  registration. 

6.     CLASSES  IN  THE  MANUAL  AND  DOMESTIC  ARTS,  SHOP  TRAIN- 
ING, SEWING,  DRESSMAKING  AND  COOKERY 

The  number  of  classes  observed  was :  5  in  sewing,  3  in  cooking, 
1  in  millinery,  2  in  basketry  and  weaving  and  6  in  sloyd.  The 
largest  class  in  cookery  (19)  was  made  up  of  girls  attending  day 
elementary  school.  The  millinery  class,  like  all  the  classes 
observed  in  the  particular  school  in  which  this  instruction  was 
being  given,  was  exceptionally  good,  with  an  attendance  of  20. 
The  other  7  classes  engaged  in  various  occupations  had  an  at- 
tendance of  10  or  less,  the  average  attendance  being  6.  The 
6  sloyd  rooms  were  attended  by  76  pupils  of  whom  all  but  16 
were  day  school  boys.  The  average  attendance  was  11.  One 
shop  had  no  lumber  and  three  pupils.  It  was  not  clear  why, 
under  the  circumstances,  this  class  might  not  have  been  sus- 
pended until  lumber  was  available. 

The  classes  in  manual  subjects,  except  in  sloyd,  and  the  parti- 
cular exceptions  referred  to,  were  disappointing  in  the  volume 
of  attendance.  Classes  like  these  are  generally  well  attended. 
When  attendance  falls  so  low,  it  seems  quite  useless  to  try  to 
continue  them.  There  was  no  evidence,  however,  that  the  causes 
for  the  poor  attendance  could  be  attributed  to  the  teachers; 
they  showed  a  great  interest  in  their  work  and  in  students  present. 

7.     CLASSES  FOR  PHYSICAL  DEVELOPMENT 

These  included  playgrounds  and  gymnastics.  On  one  play- 
ground 24  persons  were  present.  At  another  a  considerable 
crowd,  probably  50,  was  watching  a  basket-ball  contest.  The 

134 


attendance  at  other  playgrounds  was  5,  10,  16,  24.  These 
figures  may  seem  much  or  little.  There  is  no  real  method  of 
counting  attendance  in  playground  activities,  since  the  boys 
come  and  go  and  the  number  alternates  constantly.  It  can 
only  be  affirmed  that  at  the  time  a  member  of  the  Committee 
visited  their  classes  there  seemed  to  be  no  sign  of  the  interest 
and  activity  that  might  naturally  be  expected,  except  in  two 
playgrounds.  The  gymnasiums  average  13  in  attendance. 

8.     CLASSES  FOR  SOCIAL  RECREATION,  GAMES, 
AND  DANCING 

The  California  law  conceives  the  school  to  be  a  civic  center. 
In  the  same  building  are  housed  classes  for  adults,  for  children 
and  for  dancing  and  games.  That  the  schoolhouse  should  be  a 
neighborhood  club  or  civic  center  for  the  families  of  the  district, 
adults  and  children,  is  an  excellent  ideal. 

It  may  be  stated  that  the  conception  was  being  well  realized 
in  two  schools.  In  a  third  the  paucity  of  numbers  suggested 
that  the  social  phase  of  school  organization  played  little  part, 
if  any,  in  the  life  of  the  neighborhood.  In  the  fourth  school, 
the  dance  was  poorly  conducted;  a  tactful  supervisor  was  badly 
needed.  The  school  which  gave  the  deepest  impression  of  service 
and  interesting  work,  had  no  social  club  at  all,  though  there  was 
a  well  conducted  playground.  This  is,  however,  not  an  argu- 
ment against  the  social  center.  Had  the  same  principal  had 
social  activities  in  her  school,  they  would  probably  have  been 
excellent. 

The  state  law  requires  that  social  centers  shall  be  supervised. 
Successful  supervision  of  social  activities  is  a  rare  gift.  The 
supervisor  needs  to  be  active,  yet  not  officiously  so.  Her  at- 
titude should  not  be  one  of  indifference,  nor  should  it  suggest 
the  watchman  or  police  officer.  The  position  of  supervisor 
requires  a  sympathetic  understanding  of  people,  and  it  ab- 
solutely requires  a  thorough  knowledge  of  the  neighborhood.  The 
Committee  believes  that  the  development  of  the  social  center  is 
a  movement  to  be  encouraged.  It  cannot  be  properly  developed 
by  assigning  a  person  for  two  or  three  evenings  a  week,  who 
does  not  know  the  people. 

It  is  possible  to  organize  a  civic  community  center  from  anoth- 
er standpoint;  one  that  would  be  purely  democratic,  self -con- 
trolled and  self-supporting.  Apparently  the  law  does  not 
contemplate  such  a  system.  If  the  social  life  in  the  school  is  to 
be  regulated  by  a  teacher,  it  requires  a  different  method  from 
that  which  now  prevails.  Her  assignment  should  make  it 
possible  for  her  to  give  more  time. 

135 


9.     MISCELLANEOUS  ACTIVITIES 

To  care  for  the  children  of  those  parents  who  must  accompany 
them,  one  school  maintains  an  evening  nursery  for  those  who 
attend  the  classes.  No  record  was  made  of  the  attendance. 
No  criticism  can  be  made  of  a  nursery,  if  it  is  the  policy  of  the 
Board  to  establish  a  nursery  as  part  of  the  activities  of  a  neigh- 
borhood school.  No  other  nursery  was  found  in  the  evening 
elementary  schools,  although  the  classes  of  adults  were  as  numer- 
ous and  averaged  higher  in  attendance  in  schools  that  had  no 
nursery  attached.  This  raises  the  question  of  whether  the 
nursery  in  evening  schools  is  necessary,  and, -if  necessary,  why 
it  should  not  be  extended. 

In  another  school  there  was  a  librarian  who  acted  as  a  dis- 
tributor of  a  branch  library.  The  advantage,  as  stated,  was 
that  parents  who  took  the  books  from  the  school  did  not  have 
to  pay  a  fine  if  books  were  kept  too  long,  whereas  they  would 
have  to  pay  a  fine  if  they  took  the  books  directly  from  the  library. 
During  the  month  the  librarian  had  distributed  163  books. 
The  Committee  makes  no  recommendation.  If  the  policy  of 
the  Board  of  Education,  with  respect  to  the  evening  schools, 
includes  the  employment  of  one  librarian  in  a  single  school,  to 
act  as  a  distributor  and  advisor  in  the  circulation  of  books, 
there  is  no  question  but  that  this  librarian  is  excellently  qualified 
for  the  work. 

There  were  in  the  elementary  evening  schools  three  classes  in 
Spanish,  and  within  a  mile  of  these  two  schools  there  was  an 
evening  high  school  class  giving  instruction  in  the  same  subject. 
It  should  be  observed  that  the  teachers  in  the  elmentary  schools 
were  as  successful  and  as  competent  as  those  in  the  evening  high 
schools.  But  this  does  not  explain  the  reason  for  duplication 
when  all  the  classes  were  small. 

There  were  game  rooms  in  six  schools,  one  of  the  schools  had 
two  game  rooms.  They  usually  have  a  good  attendance,  those 
present  being,  as  a  rule,  children  of  school  age,  or  younger. 
The  minimum  attendance  was  5  in  one  school,  and  the  maximum 
28  in  another. 


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137 


IX 
THE  EVENING  HIGH  SCHOOLS 

The  four  evening  high  schools  were  visited,  Polytechnic,  Los 
Angeles,  Wilmington  and  San  Pedro.  In  the  last  named  no 
evening  high  school  class  was  in  session  at  the  time  of  the  visit. 

The  policy  of  the  evening  high  schools  of  the  city  is  so  broad 
and  extensive,  both  as  to  subjects  taught  and  students  enrolled, 
that  it  is  difficult  to  make  any  recommendation. 

The  number  of  subjects  is  so  varied,  that  a  simple  classification 
only  seems  necessary, — high  school  subjects,  occupations  in- 
cluding gymnastics,  and  elementary  subjects.  It  must  of  course 
be  understood  that  the  name  "evening  high  school"  is  somewhat 
inaccurate.  No  qualification  is  made  as  to  students;  they  may 
be  day  workers,  or  boys  and  girls  attending  day  high  school 
and  in  some  cases,  day  elementary  schools.  The  subjects  may 
be  high  school  subjects  or  they  may  not  be.  The  reason  for 
terming  these  schools  evening  high  schools  is  apparently,  that 
the  buildings  in  which  the  evening  sessions  are  held  are  high 
school  buildings  during  the  day,  and  that  the  teachers  who  hap- 
pen to  be  employed  in  them  are  paid  at  a  rate  accordingly,  no 
matter  what  they  teach  or  whom  they  teach.  This  at  least  is 
the  case  in  the  larger  evening  high  schools. 

This  statement  is  not  to  be  construed  as  a  criticism  but  only 
as  a  statement  of  fact,  so  that  the  expression  "evening  high 
school"  may  be  clearly  understood.  It  is  probable  that  the 
teaching  in  evening  high  schools  is  better  for  the  reason  that 
the  attendance  is  higher  and  because  being  better  paid  it  will 
attract  a  better  type  of  teacher.  This  is  true  in  the  main,  even 
though  some  individual  teachers  in  the  evening  elementary 
schools  may  be  better  than  some  individual  teachers  in  evening 
high  schools. 

It  is  pertinent  to  compare  the  Los  Angeles  policy  with  policies 
prevailing  in  some  other  cities,  such,  for  example,  as  those  in 
Boston  and  in  New  York.  Taking  the  latter  as  a  type,  because 
it  is  by  far  the  largest  and  eldest  of  evening  school  systems,  the 
differences  that  prevail  in  the  policy  and  organization  with  those 
of  Los  Angeles  will  be  interesting. 

In  the  New  York  evening  high  schools  no  students  are  admitted 
who  are  not  entitled  to  enter  a  regular  high  school,  or  who  cannot 
prove  the  equivalent  of  elementary  school  graduation.  This 
does  not  apply  to  trade  classes,  though,  as  a  rule,  evening  in- 
struction in  trades  is  housed  in  separate  buildings.  In  the  trade 
classes  those  who  have  no  trade  affiliations,  who  wish  simply  to 
be  handy  with  tools,  are  not  admitted.  Apprentices  are  en- 
couraged since  it  is  believed  (and  this  belief  is  universal  among 
students  of  industrial  education)  that  public  evening  trade 
classes, — machine  working,  applied  electricity,  plumbing,  print- 

138 


ing  and  certain  women's  trades,  should  be  established  to  train 
apprentices  to  become  skilled  trade  workers.  The  state  of 
New  York  allows  no  funds  to  classes  in  the  trades  unless  those 
present  are  actual  trade  workers. 

There  are  special  classes  for  working  boys  who  are  compelled 
to  attend  evening  schools  but  these  are  in  elementary  schools 
only.  In  no  case  is  a  boy  or  girl  attending  day  school  permitted 
to  attend  an  evening  school.  The  wisdom  of  this  regulation 
may  be  questioned.  It  must  be  remembered,  however,  that 
there  is  provision  for  day  pupils  in  the  community,  social  and 
recreation  centers  and  in  the  study  rooms  conducted  during  the 
evening. 

Respecting  the  question  of  teaching  the  same  subject  in 
elementary  and  in  evening  high  schools,  the  practice  is  to  separate 
them  definitely.  Women's  occupations,  such  as  cooking,  sew- 
ing and  dressmaking,  millinery  and  embroidery,  are  placed  in 
elementary  schools  only.  In  the  few  cases  in  which  these  are 
actual  trade  subjects  they  are  taught  as  such  in  high  or  trade 
schools.  Trade  instruction  follows  a  fixed  sequence  of  steps. 
The  teachers  are  expert  workmen.  The  conditions  are  trade 
conditions.  Trade  classes  are  not  concerned  in  aiding  the,  pupils 
to  supply  their  needs  for  clothing  or  home  necessities,  whereas 
this  is  encouraged  in  elementary  classes  in  women's  occupations. 

Conditions  affecting  teachers  are  different.  There  are  eligible 
lists  for  evening  high  school  teachers  and  the  examinations  are 
severe.  Each  teacher  is  appointed  from  a  list  in  order  of 
standing  and  no  variations  are  allowed.  Trade  teachers,  men 
or  women,  must  not  only  pass  examinations,  but  must  be  expert 
workmen  and  must  give  evidence  of  such  expertness  not  only 
by  credentials  but  by  actual  performance.  The  pay  of  all 
evening  school  principals  and  teachers  is  $2  per  evening  more  in 
New  York  than  in  Los  Angeles,  except  evening  elementary 
teachers,  who  receive  $1  more.  The  work  of  each  teacher  and 
principa1  is  reported  upon  annually,  and  those  whose  work  is 
not  good  are  not  reappointed;  if  they  are  day  school  teachers, 
they  must  have  a  similar  record  for  day  school  service. 

As  this  Committee  has  already  pointed  out,  the  practice  in 
other  places  does  not  imply  that  similar  practices  are  suitable 
here.  Los  Angeles,  like  every  place,  should  be  familiar  with 
what  others  are  doing,  and  it  must  then  decide  its  policy  for  itself. 
In  the  establishment  of  its  evening  high  schools,  Los  Angeles 
does  have  a  policy.  That  policy  is  to  open  high  school  buildings 
in  the  evening  to  everyone,  for  anything  he  wishes,  so  long  as 
he  cares  to  follow  it  or  study  it,  and  provided  only  that  the 
equipment  is  available,  that  teachers  may  be  found,  that  there 
are  sufficient  pupils  to  form  a  class.  It  is  a  very  broad  policy 
indeed — and  a  very  generous  one. 

139 


X 

SOME    ADDITIONAL    PROBLEMS    AND     COMMENTS 

1.     ATTENDANCE  IN  EVENING  ELEMENTARY  SCHOOLS 

A  table  is  presented  showing  the  number  of  classes  and  ses- 
sions, and  occasional  visits  made  during  the  first  two  weeks  of 
May  to  the  evening  elementary  schools.  Counting  all  the  pupils 
observed,  whether  attendants  at  day  school  or  not,  or  on  the 
playground,  there  were  but  three  classes  out  of  a  total  of  thirteen 
which  averaged  fifteen  per  teacher.  Of  those  who  were  observed 
in  the  evening  schools,  less  than  80%  were  made  up  of  persons 
who  did  not  also  attend  day  school.  The  total  number  o  pupils 
who  were  observed  in  all  the  evening  schools  in  this  city  at  the 
time  of  visit  was  1175.  For  94  classes  this  average  of  12  for  all 
pupils  would  be  a  bad  showing  under  any  circumstances,  but 
too  many  inferences  should  not  be  made  from  it.  It  may  be 
that  at  the  time  of  visitation  there  were  extraordinary  occasions 
or  reasons  for  this  low  attendance.  It  is  undoubtedly  true  that 
attendance  in  all  evening  school  systems  always  tends  to  be 
reduced  towards  the  end  of  the  season.  Since  evening  schools 
must  be  open  in  California  for  the  whole  year,  the  reduction 
through  the  month  of  May  would  be  approximately  greater  in 
Los  Angeles  than  cities  outside  of  the  State  in  which  evening 
school  sessions  end  in  April  and  March. 

Again,  although  attendance  does  indicate  a  great  deal,  and 
although  a  good  teacher  is  apt  to  have  a  high  rate  of  attendance, 
it  sti  1  remains  true  that  the  quality  of  the  attendance  is  more 
important  that  the  average.  Thus,  a  few  pupils  attending 
throughout  the  year  would  mean  more  for  instruction  than  50 
pupils  attending  at  the  beginning  of  the  year,  and  coming  and 
going  as  the -sessions  advanced,  so  that  every  few  weeks  only  a 
small  number  of  the  original  membership  remained.  The  pre- 
sent method  of  keeping  records  for  the  evening  elementary 
school  shows  little  but  the  bare  facts  of  attendance.  There  is  no 
way  of  determin  ng  which  subjects  have  a  constant  attendance 
of  the  same  group  of  pupils,  or  even  of  learning  how  many  people 
attend  the  evening  school  within  a  stated  period  of  time,  e.  g., 
for  10  nights  or  less,  10  to  20  nights,  20  to  30  nights,  etc. 

2.     DIVISIONS  AND  SEMESTERS 

In  evening  elementary  school  the  school  year  should  be  divided 
into  two  or  three  semesters.  A  vigorous  publicity  campaign 
should  precede  the  opening  of  each  semester  so  that  those  who 
may  be  unaware  of  the  facilities  offered  may  attend  when  the 
semester  has  opened.  After  the  semester  has  begun,  all  publi- 

140 


city  should  be  dropped  until  the  next  semester  when  measures 
should  be  taken  to  notify  the  public.  The  constant  dropping  in 
and  out  of  pupils  may  not  be  evident  in  the  figures  of  attendance 
but  it  is  one  which  neutralizes  any  real  earnest  effort. 

If  schools  are  to  be  established  as  evening  centers,  in  what  are 
termed  neighborhood  centers,  some  one  peculiarly  competent 
to  direct  such  school  should  be  selected.  If  the  principal  knows 
the  neighborhood  well  (as  she  should)  and  if  she  is  enthusiastic 
and  able,  her  services  shou'd  be  obtained.  They  are  too  valu- 
able to  lose.  No  rule  for  forbidding  double  service  should  be 
applied  in  the  case  of  such  persons. 

3.     ATTENDANCE  IN  EVENING  HIGH  SCHOOLS 

As  has  already  been  stated  the  attendance  in  evening  high 
schools  averages  higher  than  in  evening  elementary  schools. 
The  method  of  computing  attendance  is  bad.  There  are 
three  periods  per  evening.  The  official  attendance  is  at  the 
second  period.  It  is  true  that  this  method  tends  to  show  the 
maximum  attendance;  that  it  includes  all  the  pupils  who  come 
later  and  all  who  leave  early.  It  is  not  an  accurate  statement 
of  attendance. 

If  there  are  three  periods  of  attendance  there  should  be  three 
records,  and  the  evening  attendance  should  be  the  average. 

4.     CLERICAL  HELP 

The  evening  high  schools  should  have  sufficient  clerical  help  to 
permit  the  presentation  of  all  the  figures.  The  Committee  is 
unable  to  affirm,  through  lack  of  data,  what  additional  clerical 
assistance,  if  any,  is  required.  The  need  of  more  complete  and 
more  frequent  records  is  patent. 

5.     ATTENDANCE  IN  ALL  TYPES  OF  EVENING  SCHOOLS 

Concerning  attendance  generally  the  Committee  suggests 
that  principals  should  have  discretion  as  to  hours  of  opening 
and  closing  the  sessions,  without  reducing  the  total  period.  In 
some  of  the  evening  schools  there  were  teachers  who  had  no 
pupils  at  the  hour  of  opening  or  a  considerable  time  thereafter. 
If  the  hour  is  too  early  it  should  be  fixed  at  a  later  period.  It 
may  be  stated  with  a  fair  degree  of  certainty  that  under  the 
present  method  there  are  large  numbers  of  teachers  who  had 
little  or  nothing  to  do  during  the  first  half  hour  of  the  session, 
when  the  evening  schools  were  visited. 

The  rapid  reduction  in  enrollment  suggests  the  need  of  better 
methods  of  school  supervision.  Principals  should  be  warned 

141 


not  to  allow  the  classes  to  become  overcrowded  at  the  beginning 
of  the  session.  When  the  number  of  admissions  is  fixed,  ap- 
plicants should  wait  the  formation  of  a  new  class.  It  does  not 
add  to  the  value  of  evening  schools  to  permit  them  to  be  used 
merely  at  convenience. 

The  record  should  be  complete,  and  should  give  actual  en- 
rollment and  attendance  of  all  pupils  whether  in  or  out  of  day 
school.  If  a  rule  be  established  of  a  minimum  attendance  of  15, 
a  month  should  not  elapse  before  it  is  observed.  Principals 
should  be  authorized  and  directed  to  reduce  the  number  of  classes 
when  it  is  quite  evident  that  the  pupils  attending  are  insufficient. 
Sudden  spurts  that  temporarily  raise  enrollment  are  practically 
worthless  for  instruction,  even  if  they  bring  a  few  pupils  together 
for  a  brief  period.  In  reducing  or  consolidating  classes  the  super- 
visor in  charge  of  all  evening  schools  should  be  permitted  some 
discretion.  It  is  unwise  to  break  up  small  classes  in  an  advanced 
subject  like  trigonometry  or  calculus. 

6.     EMPLOYMENT  OF  DAY  SCHOOL  TEACHERS 

The  policy  in  Los  Angeles  is  to  select  for  evening  school 
service  only  teachers  who  do  not  serve  in  day  schools.  There 
were  in  the  evening  elementary  schools  less  than  thirty-five 
such  teachers,  including  sloyd  teachers. 

The  policy,  it  is  agreed,  is  sound  if  competent  evening  school 
teachers  can  be  secured.  This  is  not  a  simple  problem.  Unless 
it  is  possible  to  obtain  satisfactory  instructors  from  other  than 
the  day  school  corps  it  is  suggested  that  day  school  teachers 
may  be  employed  in  evening  schools,  subject  to  the  condition 
that  they  have  served  as  teachers  in  Los  Angeles  not  less  than 
one  year,  and  that  their  service  has  been  satisfactory  both  in 
day  and  evening  school  for  the  year  preceding. 

The  evening  schools  need  supervision  by  some  one  who  can 
give  abundant  time  to  their  development.  Waste,  through 
unnecessary  duplication  or  other  faulty  organization,  should  be 
reduced.  Los  Angeles  is  not  spending  too  much  money  on 
its  evening  schools.  The  aim  should  be  to  spend  it  more  ef- 
fectively. 

7.     RECOMMENDATIONS 
The  Committee  recommends: 

1:  That  the  supervising  authority  in  charge  of  evening 
schools  be  relieved  of  other  duties  so  as  to  be  free, 
so  far  as  possible,  to  give  fu  1  time  to  the  reorganiza- 
tion and  more  intensive  supervision  of  the  evening 
schools. 

142 


2:  That  in  organizing  the  evening  elementary  schools  and 
evening  high  schools,  subjects  and  classes  be  assigned 
in  such  a  manner  as  to  avoid  unnecessary  duplication. 

3:  That  arrangements  be  made  for  the  normal  instruction 
of  teachers  of  foreigners,  either  independently  or  in 
co-operation  with  the  Normal  School. 

4:  That  the  method  of  selecting  and  appointing  teachers 
be  organized  so  as  to  secure  the  most  competent 
teachers,  in  accordance  with  suggestions  made  in 
this  report. 

5:  That  principals  be  empowered  to  modify  the  hours  in 
beginning  and  opening  sessions,  or  that  permission 
be  given  for  changing  such  hours  when  the  days 
lengthen. 

6:  That  principals  be  empowered  to  drop  classes  in  cases 
in  which  it  is  evident  that  the  registration  is  too  small, 
or  in  cases  in  which  the  average  attendance  is  below 
the  minimum  fixed  for  a  period  of  ten  evenings. 

7:  That  the  system  of  records  be  re-organized  so  as  to 
indicate  the  exact  number  of  pupils  attending  each 
period  or  each  evening  of  evening  school  sessions,  and 
the  distribution  of  pupils  by  subjects  and  periods  of 
attendance. 

8:  That  discretion  be  permitted  the  supervisory  officer 
in  applying  the  rules  forbidding  the  employment  of 
teachers  or  principals  engaged  in  day  work,  when 
proper  reasons  are  given  therefor. 


143 


xi 

THE  EXPERIENCE,  TRAINING  AND  CERTIFICATION 
OF  PRINCIPALS,   TEACHERS    AND   SUPERVISORS 


1.     IN  ELEMENTARY  SCHOOLS 

TABLE  36:     SHOWING   EXPERIENCE,   TRAINING  AND   CERTIFICATION  OF  THE 
VARIOUS  GRADES  OF  TEACHERS,  PRINCIPALS  AND  SUPERVISORS,  THESE 

REPORTS  DO  NOT  INCLUDE  ALL  TEACHERS  EMPLOYED.     IN 
ALL    CASES    IN    WHICH    TEACHERS    REPORTED    COLLEGE  ATTENDANCE 
THIS  WAS  ASSUMED   TO  INCLUDE  EITHER  NORMAL  OR  HIGH 

SCHOOL  TRAINING 
KINDERGARTEN  DIRECTORS  (137) 


Over 

Years  of  service 

y>-\ 

2-3 

3-5 

5-10 

10-15 

15-25 

25 

Experience  in  Los  Angeles  

7 

24 

27 

37 

20 

20 

2 

Experience  out  of  Los  Angeles  . 

14 

13 

17 

9 

Total  experience  

10 

2£ 

44 

24 

33 

4 

Median  number  years  total  experience. 


.  5-10 


Years  of  study  

1 

2 

3 

4 

5 

6 

High  school  only 

1 

2 

3 

Normal  only 

High  and  normal  .  . 

2 

29 

8 

4 

College  

14 

16 

5 

6 

University  
Correspondence  school  since   1911  
Saturday  school  since   1911  
Summer         "          "          "     

1 
15 

16 
1 
1 
24 

5 
14 

6 

1 
1 

Kg. 

Kg. 

Kg. 

Rg. 

and 

and 

and 

Total 

and 

1st 

spcl. 

tt.  8. 

Certificates  

Kg. 

elem. 

gr- 

elem. 

spcl. 

Number  having  

120 

4 

6 

6 

1 

137 

144 


KINDERGARTEN    ASSISTANTS    (114) 


Over 

Years  of  service 

YY-\ 

2-3 

3-5 

5-10 

10-15 

15-25 

25 

Experience  in  Los  Angeles  

35 

55 

13 

6 

3 

1 

1 

Experience  out  of  Los  Angeles  .  . 

9 

14 

5 

15 

2 

2 

Total  experience 

16 

44 

23 

18 

8 

4 

1 

Median  number  years  total  experience 


Years  of  study  

1 

2 

3 

4 

5 

6 

High  school  only 

Normal  school  only  
High  school  and  normal  
College  

16 

78 
1 

6 

'2 
2 

University 

2 

2 

1 

Correspondence  school  since  1911 

7 

Saturday                                "       "     .... 
Summer                                 "        "     .... 

13 
17 

'6 

'2 

Kg.    & 

Kq.   & 

Kg. 

Kg.  & 

Kq.    & 

Spl. 

n.  s. 

Total 

Certificates  

Elem. 

Elem. 

1st  Gr. 

Elem. 

SpcL 

Number  having 

103 

4 

3 

1 

3 

114 

145 


ELEMENTARY    TEACHERS    (1212),    INCLUDING    TEACHERS    OF    UNGRADED    CLASSES 

ALSO 
EMERGENCY    ELEMENTARY    TEACHERS 


Years  of  service  

1A-1 

161 
132 

2-3 

3-5 

5-10 

10-15 

15-25 

Oirr 
25 

Experience  in  Los  Angeles  
Experience  out  of  Los  Angeles. 

333 
247 

249 
141 

148 

319 
284 

304 

130 
180 

291 

9 

85 

247 

14 

81 

Total  experience  

30 

116 

Median  number  years  total  experience 10-15 


Years  of  study  

1 

2 

3 

4 

5 

6 

High  school  only  

11 

8 

24 

Normal  school  only  

13 

26 

26 

10 

High  and  normal  

52 

490 

3S 

62 

College  

58 

61 

39 

16 

University  

122 

85 

60 

57 

Correspondence  school  since  1911  

49 

4 

2 

1 

Saturday                                        "       

79 

43 

7 

1 

Summer                    "          "         "       

114 

78 

26 

10 

4 

Certificates 

Reg. 

elein 

spcl. 
clem. 

reg. 
II    N 

spcl. 
II  S. 

Ele. 
and 
Spec. 
II.  S 

Reg. 

Ele. 
&  reg. 
II.  N. 

Number  having  
Total  

1148 

0 

26 

0 

25 

13 
1212 

146 


ELEMENTARY    SCHOOL    PRINCIPALS    (145) 


Years  of  service  

H~l 

2-3 

3-5 

5-10 

10-15 

15-25 

39 
15 

Over 
25 

Experience  in  Los  Angeles  
Experience  out  of  Los  Angeles. 

9 
12 

5 

30 

17 

22 

36 
35 

28 
21 

11 
4 

Total  experience  

0 

3 

4 

10 

25 

59 

44 

Median  number  years  total  experience 15-25 


Years  of  study 

1 

2 

3 

4 

5 

6 

High  school  only 

1 

4 

Normal  school  only 

High  and  Normal  
College.  .  .                                    ... 

4 
4 

37 

8 

21 

16 
3 

University  
Correspondence  school  since  1911     ... 
Saturday 

"20 
30 

21 
3 
12 

7 
4 
11 

10 
1 
5 

8 
2 
4 

Certificates   .  . 

Reg. 

elem. 

Spcl. 
elem. 

Reg. 
H.  S. 

S-pcl. 
H.  S. 

Elem. 
& 
Spcl. 
H.  S. 

Reg. 
Elem. 
& 
Spcl. 
H.  S. 

Number  having  
Total  

129 

9 

2 

5 
145 

147 


SPECIAL    TEACHERS 

AGRICULTURE — BATAVIA — DOMESTIC     SCIENCE,     DRAWING     AND 
MUSIC — CLASSES    FOR    THE    DEAF 


Over 

Years  of  service 

K-l 

2-3 

3-5 

5-10 

10-15 

15-25 

25 

Experience  in  Los  Angeles  

63 

94 

68 

42 

22 

11 

Experience  out  of  Los  Angeles  .  . 

35 

68 

36 

41 

27 

22 

Total  experience  

23 

43 

49 

48 

45 

50 

10 

Median  number  years  total  experience 5-10 


Years  of  study                        

1 

2 

3 

4 

5 

6 

High  school  only  

2 

1 

2 

.... 

Normal  school  only  

4 

3 

2 

4 

. 

High  school  and  normal 

19 

49 

33 

24 

College  

18 

10 

6 

9 

University  

35 

9 

5 

6 

Correspondence  school  since  1911  .... 

4 

2 

Saturday  school  since  1911  

56 

11 

5 

2 

Summer         "         "       "      

71 

23 

22 

7 

3 



Elem. 

and 

Reg. 

Spcl. 

Reg. 

Spcl. 

Spcl. 

Total 

Certificates  

elem. 

elem. 

H.S. 

H.  S. 

H.  S. 

Number  having 

49 

43 

7 

81 

80 

260 

148 


SUPERVISORS    OF    SPECIAL    SUBJECTS 

AGRICULTURAL,  DRAWING,  DOMESTIC  SCIENCE,  MANUAL  TRAINING,  MANUAL 
ARTS  NATURE  STUDY,  ORCHESTRA,    PHYSICAL  EDUCATION,  HEALTH    DEPARTMENT 


Over 

Years  of  service  

]A-\ 

2-3 

3-5 

5-10 

10-15 

15-25 

25 

Experience  in  Los  Angeles  

1 

6 

13 

17 

8 

5 

Experience  out  of  Los  Angeles  . 

1 

10 

4 

9 

16 

5 

1 

Total  experience. 

6 

7 

11 

24 

4 

Median  number  years  total  experience 15-25 


Years  of  study  

1 

2 

3 

4 

5 

6 

High  school  only  
Normal  school  only  
High  and  normal  
College  
University 

i 

5 

1 
4 

i 

6 
2 
3 

"2 
1 
5 

1 

"5 
17 

Correspondence  school  since  1911  

3 

2 

Saturday  **  "  "  .... 
Summer  "  "  "  .... 

4 
5 

1 
11 

1 
3 

5 
1 

2 
5 

Elem. 

and 

Certificates  

Reg. 
Elem. 

Spcl. 
Elem. 

Reg. 
H.  S. 

Spcl. 
H.  S. 

Spcl. 
H.S. 

Total 

Number  having  

10 

10 

8 

29 

57 

149 


TABLE  37:     GIVING  A  SUMMARY  OF  PRECEDING  TABLE  AS  THE  DATA  AFFECT 
ELEMENTARY    TEACHERS,     PRINCIPALS    AND    SUPERVISORS 


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*•* 

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H"^ 

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"•£s 

^ 

Js 

«  a. 

^ 

^£^^r* 

^ 

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^     <5i 

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, 

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P, 

^ 

^     V 

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~0 

*  as 

t  ^ 

^  s 

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11 

S      ^ 

g  5 

it 

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"•^         ^i 

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S  | 

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J.g 

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^i  "lNi 

1: 

§»  0 

*"•  2 

1  § 

Subject 

^    0 

^    0 

^ 

^  j1 

^'1 

^    0 

Kindergarten  directors  .  .  . 

137 

63 

7 

4 

115 

94 

assistants.  . 

114 

24 

4 

5 

35 

59 

Total  

251 

87 

11 

9 

150 

0.6 

153 

0.61 

Elementary  teachers  

1212 

496 

73 

108 

1059 

0.87 

676 

0.59 

Elementary  principals.  .  .  . 

145 

61 

11 

24 

129 

0.89 

232 

1.60 

Special  teachers  

194 

98 

15 

24 

184 

0.94 

412 

2.17 

Suocr  visors 

57 

38 

22 

20 

121 

2.12 

111 

2.59 

KI NDERGARTENERS 

The  kindergarteners  represent,  as  a  whole,  the  youngest 
group  of  teachers,  the  median  years  of  experience  of  the  directors, 
or  head  teachers,  being  5  to  10,  and  of  assistant  teachers,  3 
to  5. 

Among  137  directors  and  114  assistants  who  reported,  there 
are  11  who  were  in  colleges  and  universities  for  4  years.  There 
are  9  who  hold  degrees.  This  is  equivalent  to  4%  of  the  corps. 
The  aggregate  of  college  or  university  work  was  150  years,  or 
(for  purposes  of  comparison)  an  average  of  .60  years  of  college 
work  to  each  teacher  of  the  corps. 

For  the  kindergarten  corps  who  attended  Saturday  sessions 
and  summer  schools,  or  who  took  up  correspondence  courses, 
the  total  number  of  sessions  aggregated  153,  or  0.61  courses 
per  teacher. 


150 


ELEMENTARY     TEACHERS      (INCLUDING     TEACHERS     OF     UNGRADED 
SCHOOLS,    EMERGENCY    TEACHERS,    ETC.) 

More  than  half  of  the  elementary  school  teachers  have  served 
more  than  10  years;  the  median  is  10  to  15  years. 

Less  than  5%  have  any  certificate  entitling  them  to  do  work 
beyond  the  elementary  grades. 

Of  the  1212  teachers  reporting  there  are  73  who  attended 
college  or  university  for  4  years.  There  are  108  who  hold  de- 
grees. This  is  equivalent  to  about  7%  of  the  corps.  The 
aggregate  of  college  or  university  work  was  1059  years,  or  .87 
years  to  each  teacher. 

The  aggregate  number  of  sessions  at  summer  schools,  Sat- 
urday sessions  and  correspondence  courses  was  676,  or  .56  to  a 
teacher. 

ELEMENTARY    PRINCIPALS 

As  wou'd  be  expected,  the  median  number  of  years  of  experi- 
ence would  be  greater  for  elementary  principals.  In  the  Los 
Angeles  schools  the  median  is  15  to  25  years. 

Of  the  145  principals  reporting  there  are  11  who  completed 
4  years  of  college  or  university  work.  There  are  24  who  took 
degrees.  This  is  equivalent  to  17%  of  the  corps.  The  aggre- 
gate of  college  or  university  work  was  129  years,  or  .80  years  to 
each  principal. 

The  aggregate  number  of  sessions  attended  at  summer  schools, 
Saturday  sessions  and  correspondence  courses  was  232,  or  1.6 
to  a  principal. 

It  is  gratifying  to  note  that  principals  are  setting  a  good  ex- 
ample to  teachers  by  attending  supplementary  courses.  Com- 
pared with  the  elementary  principals,  the  elementary  teachers 
share  almost  as  high  an  average  of  college  study,  but  only  a 
third  as  high  an  average  in  supplementary  study. 

SPECIAL   TEACHERS 

The  median  experience  of  teachers  of  special  subjects  is  the 
same  as  that  of  kindergarten  directors,  5  to  10  years.  Of  the 
194  special  teachers  reporting,  there  are  15  who  attended  a 
college  or  university  for  4  years.  There  are  24  who  hold  degrees. 
This  is  equivalent  to  about  12%  of  the  corps.  The  aggregate 
of  college  or  university  work  was  184  years,  or  0.95  to  a  teach- 
er on  the  average. 

For  the  special  teachers  who  attended  Saturday  sessions  or 
summer  sessions,  or  who  studied  by  correspondence,  the  total 
number  of  sessions  aggregated  422  or  2.17  per  teacher — a  high 
average. 

151 


THE    SUPERVISORS    OF    SPECIAL   SUBJECTS 

Persons  holding  these  positions  have  naturally  been  longer 
in  the  service  than  the  special  teachers  they  supervise.  The 
median  of  years  of  service,  as  in  the  case  of  elementary  principals 
is  15  to  25. 

Of  the  57  supervisors  or  assistant  supervisors  20  have  taken 
degrees,  or  about  35%  of  the  staff.  There  are  22  who  spent 
4  years  in  college.  The  aggregate  distribution  of  years  of  col- 
lege work  is  121  or  2.12  years  per  teacher. 

There  were  111  hours  of  work  in  correspondence  courses, 
summer  schools  and  Saturday  sessions,  an  average  of  2.59  for 
each  teacher  of  the  corps. 

In  making  comparisons  among  the  different  divisions  of  a 
corps  by  per  cents.,  incautious  inferences  should  be  avoided. 
Estimates  based  on  aggregates  that  are  averaged  by  dividing 
by  a  number  of  persons  who  have  not  contributed  to  the  ag- 
gregate are  apt  to  be  misleading.  At  best  they  give  only  a 
general  basis  for  comparison. 

It  is  obvious,  for  example,  that  if  among  forty  teachers  twenty 
have  finished  four  years'  college  work  and  twenty  have  not, 
then  a  statement  that  the  average  is  two  years  per  teacher  may 
mean  very  little,  if  compared  with  another  group  of  forty  all  of 
whom  have  attended  college  for  from  1  to  2  years'  time. 


152 


2,     IN  INTERMEDIATE  SCHOOLS 

TABLE  38:     SHOWING  TRAINING,  EXPERIENCE  AND  CERTIFICATION  OF  THE 
TEACHING    FORCE    IN    INTERMEDIATE    SCHOOLS    ACCORDING 
TO  NUMBER  WHO  REPORTED 
INTERMEDIATE  TEACHERS 


Over 

Years  of  service  .    . 

y>-\ 

2-3 

3-5 

5-10 

10-15 

15-25 

25 

No.    of   teachers    having   experi- 

ence in  Los  Angeles  

12 

78 

79 

64 

30 

15 

1 

No.  of  teachers  having  experi- 

ence out  of  Los  Angeles  

18 

57 

29 

67 

46 

12 

1 

Total  experience  

3 

21 

30 

73 

67 

77 

7 

Median  number  years  total  experience  in  the  group 10-15 


Years  of  Study  

1 

2 

3 

4 

5 

6 

Xo.  of  teachers  who     studied     in 
high  school  only  
Normal  school  only  
High  school  and  normal  
College  

1 

'6 

18 

23 
14 

1 

18 
8 

5 

15 
14 

University  

40 

26 

21 

68 

Correspondence      school      since 
1911 

9 

Saturday  school  since  1911  
Summer  school  since  1911                 .  . 

6 
14 

i 

2 

13 

3 

Certificates  

Reg. 

Elem. 

Spcl. 
Elem. 

Reg. 

H.  S. 

Spcl. 
H.  S. 

Elem. 
and 
Special 
H.  S. 

Reg. 
Elem.    & 
Special 
H.  S. 

Number  having 

134 

144 

153 


INTERMEDIATE    PRINCIPALS    AND    VICE    PRINCIPALS 


Over 

Years  of  service  

H-l 

2-3 

3-5 

5-10 

10-15 

15-25 

25 

Experience  in  Los  Angeles  

2 

2 

5 

5 

2 

Experience  out  of  Los  Angeles  . 

•2 

4 

5 

2 

Total  experience 

1 

4 

7 

4 

Median  number  of  Years  total  experience  in  the  group. 


15-25 


Years  of  study  

1 

2 

3 

4 

5 

6 

High  school  only  
Normal  school  only  
High  school  and  normal  
College 

3 
2 

1 

2 
'  '2 

University  . 

Correspondence  school  since  1911  
Saturday  courses  since  1911  
Summer  courses  since  1911  

23 
30 
51 

9 
14 
34 

"? 
19 

1 
2 
13 

3 
9 

Elem. 

Re«. 

and 

Elem.    & 

Certificates  .... 

Reg. 
Elem. 

Spcl. 
Elem. 

Reg. 

H.  S. 

Spcl. 
H.  S. 

Special 
H.  S. 

Reg. 

H.  S. 

Number  receiving  

2 

1 

8 

5 

Salaries $1920.00     $3000.00 

Number  receiving 8  8 


154 


INTERMEDIATE    TEACHERS 

Of  280  teachers  in  the  intermediate  schools  reporting,  134 
hold  regular  high  school  certificates  and  146  hold  high  school 
special  certificates. 

These  teachers  report  a  wide  variation  of  training,  ranging 
from  college  or  university  graduation  to  high  school  graduation 
only. 

An  analysis  of  these  reports  indicates  that  209  out  of  278  have 
had  one  or  more  years  of  college  or  university  training;  one 
hundred  and  twenty-one,  or  43  per  cent.,  hold  degrees  from  any 
college  or  university;  fifteen  reported  a  four  year  normal  course; 
eighteen  a  three  year  normal  course;  twenty-three,  two  year 
normal  course;  and  six,  one  year  normal  course.  On  the  whole, 
from  these  data  it  seems  that  the  intermediate  school  teachers 
have  less  training,  as  measured  in  terms  of  college  or  normal 
school  work,  than  the  high  school  teachers. 

Inasmuch  as  the  teachers  in  the  intermediate  high  schools  are 
paid  on  the  same  salary  schedule,  it  seems  only  reasonable 
that  these  teachers  be  held  responsible  for  an  extensive  academic 
or  technical  training.  College  graduation  has  been  the  standard 
for  a  generation  for  the  best  high  school  teachers. 

In  the  judgment  of  this  Committee,  the  eligibility  require- 
ments of  the  teachers  of  the  intermediate  schools  appointed 
in  the  future  should  be  fixed  so  as  to  guarantee  a  high  type  of 
preparation.  This  Committee  recognizes  the  fact  that  college 
or  normal  school  graduation  is  by  no  means  a  guarantee  of 
success,  yet  it  is  a  safeguard. 

This  Committee  also  recognizes  the  fact  that,  in  the  case  of 
teachers  of  certain  vocational  subjects,  it  is  difficult  to  find  ap- 
plicants qualified  to  teach  these  subjects  who  are  also  graduates. 

The  record  of  attendance  at  summer  school  or  Saturday  ses- 
sions, as  well  as  of  study  by  correspondence,  indicates  that  the 
members  of  the  intermediate  school  corps  are  endeavoring  to 
raise  the  general  standard  of  instruction.  An  average  of  1.5 
sessions  per  teacher  compares  favorably  with  what  teachers  in 
other  branches  of  the  school  department  are  doing. 


155 


3.     IN  HIGH  SCHOOLS 


TABLE  38 A:     SHOWING    TRAINING,     EXPERIENCE    AND     CERTIFICATION     OF 
THE  TEACHING  FORCE  IN  HIGH  SCHOOLS  ACCORDING  TO    NUMBER 

WHO  REPORTED 
HIGH  SCHOOL  TEACHERS 


Years  of  service 

2-3 

3-5 

5-10 

10-15 

15-25 

Over 
25 

Experience  in  Los  Angeles  
Experience  out  of  Los  Angeles  . 

52 
31 

115 

82 

121 

70 

141 
139 

44 

67 

25 

39 

1 
2 

Total  experience  

5 

33 

42 

141 

117 

136 

26 

Median  number  years  total  experience  in  the  group .  .  . 


. .10-15 


Years  of  study  

1 

2 

3 

4 

5 

6 

High  school  only  
Normal  school  only  

1 

3 
4 

2 
2 

10 
2 

1 

High  school  and  normal  
College.  . 

6 
15 

22 
20 

11 
14 

3 
41 

3 

University  . 

73 

58 

47 

156 

Correspondence  school  since  1911.  .  .  . 
Saturday  courses  since  1911 

57 
55 

2 

8 

1 
1 

3 

Summer  courses  since  1911 

93 

60 

44 

13 

17 

Elem. 

Reg. 

and 

Elem.    & 

Certificates  .  .  . 

Reg. 

Elem 

Spcl. 

Elem 

Reg. 

H    S 

Spcl. 
H   S 

Special 
H    S 

Reg. 

H    S 

Number  having  

319 

175 

156 


HIGH    SCHOOL    PRINCIPALS    AND    VICE    PRINCIPALS 


Over 

Years  of  service  

M-l 

2-3 

3-5 

5-10 

10-15 

15-25 

25 

Experience  in  Los  Angeles  

3 

1 

2 

11 

5 

2 

Experience  out  of  Los  Angeles  . 

2 

5 

7 

5 

4 

1 

Total  experience  

5 

7 

14 

3 

Median  number  years  total  experience  in  the  group 


15-25 


Years  of  study 

1 

2 

3 

4 

5 

6 

High  school  only 

Normal  school   only 

High  school  and  normal  

1 

College 

1 

University  

6 

4 

4 

8 

Correspondence  school  since  1911.  .  .  . 
Saturday  courses  since  1911 

2 

Summer  schools  since  1911 

3 

1 

4 

1 

Elem. 

Reg. 

and 

Elem.    & 

Certificates  

Reg. 
Elem. 

Spcl. 
Elem. 

Reg. 
H.  S. 

Spcl. 
H.  S. 

Special 
H.  S. 

Reg, 

H.  S. 

Number  having 

24 

157 


TEACHING  FORCE HIGH  SCHOOL  TEACHERS 

Of  the  494  teachers  reporting  319  hold  high  school  certificates, 
and  175  hold  special  high  school  certificates. 

These  teachers  report  a  wide  variation  of  training,  ranging 
from  eight  years  of  university  training  to  one  year  of  high  school 
and  to  no  training  at  all.  The  table  shows  reports  of  the  train- 
ing of  497  high  school  teachers.  This  means  that  three  teachers 
reported  no  year  of  training.  One  teacher  reported  one  year 
only  of  high  school  training;  three,  two  years  of  high  school 
training  only,  and  so  on.  It  should  be  noted  that  the  distinc- 
tion between  college  and  university  work  is  arbitrary  and  has 
not  been  made  the  same  in  all  cases.  However,  there  are  almost 
one  hundred  teachers  who  have  had  not  to  exceed  one  year's 
training  in  normal  school,  college  or  university  work.  On  the 
other  hand,  there  are  sixty-three  teachers  who  have  had  in  ex- 
cess of  four  years  of  normal,  college  and  university  training. 
These  variations  seem  wide  but  it  is  conceivable  that  each  in- 
dividual case  is  justifiable.  Nevertheless,  in  the  judgment  of 
this  Committee,  it  is  highly  desirable  that  the  eligibility  re- 
quirements in  future  be  established  so  as  to  guarantee  more 
academic  and  professional  training  than  exists  now  in  the  case 
of  teachers  with  minimum  training. 

The  degrees  range  from  the  ordinary  Bachelor  of  Arts  degree 
to  the  degree  of  Doctor  of  Laws,  Doctor  of  Philosophy  and  Doctor 
of  Medicine.  The  total  number  of  degrees  reported  by  the  494 
teachers  are  340;  leaving  about  150  teachers  who  report  no 
degrees  which  confirms  the  facts  suggested  in  the  table  showing 
college  training. 

As  the  committee  has  already  stated  the  possession  of  a 
degree  from  college  does  not  guarantee  an  efficient  teacher. 
Nevertheless  it  is  one  check  of  intellectual  interest  and  endeavor 
which  has  been  considered  valuable  since  the  first  establishment 
of  high  schools.  In  view  of  the  fact  that  there  are  so  many  ap- 
plicants for  teaching  positions  here  it  seems  desirable  that  the 
administration  emphasize  college  training  as  a  condition  in  the 
future  selection  of  teachers. 

One  measure  of  the  intellectual  and  professional  interest  of 
the  teacher  is  attendance  at  summer  schools  and  Saturday 
classes  and  the  taking  of  correspondence  courses.  The  table 
(P.  197)  shows  the  number  of  high  school  teachers  who  have  done 
such  work  within  the  past  five  years.  This  indicates  that  within 
the  past  five  years  fifty-seven  teachers  have  registered  for  one 
correspondence  course;  fifty-five  have  taken  at  least  one  Satur- 
day course  arid  ninety-three  have  attended  one  summer  session. 
Sixty  have  attended  two  summer  sessions,  etc. 

158 


Many  cities  place  a  definite  premium  upon  such  evidences  of 
professional  growth  by  providing  definite  rewards  for  advanced 
study,  either  in  the  nature  of  cash  bonuses  or  definite  recogni- 
tion for  promotion.  Boston  and  New  York  require  a  merit  sys- 
tem of  promotion.  Many  cities  recognize  such  evidence  of 
growth  in  their  system  of  promotion  on  merit. 

EXPERIENCE  OF  HIGH  SCHOOL  TEACHERS 

The  experience  of  high  school  teachers  varies  from  one  to 
thirty-five  years.  The  median  experience  including  work  within 
and  without  Los  Angeles  is  12  years.  It  may  be  said  that  the 
high  school  teachers  in  Los  Angeles  are  relatively  young  as 
compared  with  high  school  teachers  in  other  cities  having  a 
population  approximately  equal  to  that  of  Los  Angeles.  Ac- 
cording to  the  present  salary  schedule  about  half  of  the  teachers 
have  had  sufficient  years  of  experience  to  receive  the  maximum 
salary. 

4.     IN  EVENING  SCHOOLS 

TABLE  39:     SHOWING  TRAINING,  EXPERIENCE  AND   CERTIFICATION  OF  THE 
TEACHING  FORCE  IN  ELEMENTARY  EVENING  SCHOOLS  NOT  OTHERWISE 

REPORTED 


Over 

Years  of  service  

l^-l 

2-3 

3-5 

5-10 

10-15 

15-25 

25 

Experience  in  Los  Angeles  

39 

20 

2 

4 

3 

Experience  out  of  Los  Angeles  . 

9 

6 

8 

8 

8 

2 

1 

Total  experience  

16 

22 

8 

8 

5 

7 

3 

Median  number  years  experience  in  the  group. 


Years  of  study. 

1 

2 

3 

4 

5 

6 

High  school  only  

1 

1 

Normal  school  only  

3 

16 

3 

2 

High  school  and  normal  

College  

4 

4 

1 

. 

University  

16 

7 

5 

11 

Correspondence  school  since  1911 

1 

2 

Saturday  courses  since  1911 

7 

1 

Summer  school  since  1911  

9 

5 

3 

1 

Klein. 

Reg. 

and 

Elem.  & 

Reg. 

Spcl. 

Kt'tf. 

Spcl. 

Special 

Reg, 

Certificates  

Elem. 

Bfem. 

H.  S. 

H.  S. 

II.   S. 

H.  S. 

Number  having                          i 

42 

7 

4 

14 

2 

159 


EVENING  SCHOOL  TEACHERS 
EVENING  ELEMENTARY  SCHOOLS 

Of  the  evening  elementary  school  teachers  employed  69  are 
not  teaching  in  the  day  school.  Of  this  number  48  had  attended 
college  or  university  for  one  or  more  years;  there  were  11  who 
had  attended  college  for  four  years  and  19  who  had  degrees. 
This  is  a  much  higher  average  than  is  recorded  among  the 
teachers  of  the  elementary  corps  in  the  matter  of  attendance 
at  college. 

The  attendance  at  summer  schools  and  Saturday  morning 
sessions  also  shows  a  high  average.  It  is,  therefore,  evident  that 
these  members  of  the  evening  elementary  school  corps  cannot  be 
termed  poorly  trained.  There  are  some  aspects  of  their  work, 
however,  for  which  there  is  not  at  the  present  time  any  provision 
for  proper  instruction.  The  Committee  refers  especially  to  the 
lack  of  facilities  for  affording  any  training  in  method  or  pro- 
cedure dealing  with  the  teaching  of  foreigners. 

TABLE  39A:     SHOWING  TRAINING,  EXPERIENCE  AND  CERTIFICATION  OF  THE 

TEACHING  FORCE  IN  EVENING  HIGH  SCHOOLS  NOT 

OTHERWISE  REPORTED 


Years  of  service  

K-l 

2-3 

3-5 

5-10 

10-15 

15-25 

Over 
25 

Experience  in  Los  Angeles  
Experience  out  of  Los  Angeles  . 

19 
3 

11 
3 

5 
4 

3 

7 

1 

7 

1 

7 

1 

Total  experience    . 

8 

7 

3 

7 

5 

9 

4 

Median  number  years  total  experience  in  the  group 


5-10 


Years  of  study 

1 

2 

3 

4 

5 

6 

High  school  only  .  .  . 

1 

4 

Normal  school  only  
High  school  and  normal  
College 

2 

i 

8 

University 

6 

5 

3 

11 

Correspondence  courses  since  1911  .  .  . 
Saturday  schools  since  1911  
Summer  courses  since  1911  

7 
3 
12 

2 
2 
4 

i 

i 

3 

Elem. 

Reg. 

and 

Elem.    & 

Certificates 

Reg. 
Elem 

Spcl. 
Elem. 

Reg. 

H.  S. 

Spcl. 
H.  S. 

Special 
H.  S. 

Reg. 
H.  S. 

Number  having     .    . 

12 

30 

160 


EVENING    HIGH    SCHOOL   TEACHERS 

Out  of  the  42  evening  high  school  teachers  and  principals  who 
are  not  employed  in  day  school  almost  all  have  attended  col- 
lege. 19  of  the  42  have  attended  college  or  university  for  four 
years  and  fifteen  have  received  degrees. 

Reference  to  the  figures  in  the  table  shows  that  teachers 
in  evening  high  school  who  are  not  employed  in  day  school 
have  a  high  standard  of  training,  averaging  2J/£  years  of  college 
work  per  teacher. 

The  per  cent,  of  attendance .  at  summer  schools,  Saturday 
sessions,  etc.,  is  unusually  high  for  teachers  who  are  engaged  in 
evening  work  only. 

It  is  difficult  to  obtain  all  the  facts  of  training  from  an  enum- 
eration of  college  or  summer  school  attendance.  Some  teach- 
ers have  traveled,  taken  courses  in  reading,  or  had  private  in- 
struction. There  are  many  factors  that  contribute  to  general 
training  and,  in  some  measure,  to  professional  training,  besides 
attendance  at  institutions  of  instruction. 

The  Committee  has  stated  why  it  believes  this  latter  type  of 
instruction  desirable,  and  even  necessary.  It  does  not  question, 
however,  that  among  the  men  and  Women  who  have  no  official 
record  of  attendance  at  institutions  of  learning,  there  are  many 
who  in  their  work  and  life  exemplify  very  high  ideals  of  pro- 
fessional excellence. 


5.     APPOINTMENT  OF  TEACHERS 

(a)    PRESENT    METHOD 

Reference  to  the  report  of  the  Board  of  Education  under  date 
of  June  30,  1914,  pages  143  to  158  shows  the  details  of  appoint- 
ment ancTpromotion  in  the  Los  Angeles  schools  These  are 
partially  controlled  by  legal  restrictions  of  the  state  and  are 
partially  the  result  of  Board  regulations  in  the  city  of  Los  Angeles. 
Within  limits,  it  is  possible  for  the  Board  to  set  up  its  own  rules 
for  eligibility  and  promotions. 

The  number  of  applicants  for  teaching  positions  in  the  city 
of  Los  Angeles  is  greatly  in  excess  of  vacancies.  It  is,  there- 
fore, possible,  from  a  practical  standpoint,  for  the  city  of  Los 
Angeles  to  set  up  very  much  higher  standards  of  entrance  than 
now  exist.  For  example,  on  the  occasion  of  the  last  examina- 
tion of  teachers  there  were  about  six  hundred  candidates  who 
had  met  the  state  and  county  requirements;  there  will  probably 
not  be  more  than  two  hundred  positions  to  fill.  Thus  the  city 
has  a  fine  opportunity  for  selection. 

161 


Since  the  Board  is  apparently  in  a  position  to  make  higher 
requirements  for  appointment,  it  would  be  wise  for  it  to  take  ad- 
vantage of  such  condition.  The  present  qualifications  should 
continue;  that  is,  requirements  for  kindergarten,  elementary, 
high,  elementary  intermediate,  elementary  special  and  high 
school  special  teachers.  It  would  be  well  to  make  definite 
conditions  as  to  eligibility  for  elementary  school  principals  and 
evening  school  principals  and  teachers.  These  recommenda- 
ions,  however,  should  be  in  no  wise  interpreted  to  mean  that 
new  qualifications  or  conditions  for  appointment  should  affect 
the  eligibility  of  members  of  the  supervisory  and  teaching  corps 
now  performing  satisfactory  service,  if  the  continuance  of  the 
class  of  service  is,  itself,  considered  necessary. 

So  long  as  increase  in  salaries  is  automatic,  the  only  safe- 
guard which  the  Board  can  make  for  improving  the  professional 
quality  of  teachers  is  through  the  establishment  of  conditions 
of  eligibility  for  the  original  appointment.  In  those  cases, 
however,  in  which  there  is  some  provision  for  promotion,  as  in 
appointment  of  elementary  teachers  to  elementary  principal- 
ships  it  is  very  desirable  that  the  Board  should  recognize  that 
such  promotion  is,  in  effect,  the  beginning  of  a  new  type  of  ser- 
vice for  which  a  special  qualification  may  be,  and  should  be 
required.  Every  city  recognizes  that  promotions  in  the  teach- 
ing corps  shouM  be  made  from  among  those  who  have  distin- 
guished themselves  by  their  service  as  teachers.  It  is,  however, 
difficu  t  to  assume  that  the  successful  performance  of  class- 
room duties  is  the  only  essential,  however  necessary  it  may  be 
that  the  candidate  has  been  a  competent  teacher.  Further- 
more, it  will  always  be  possible  to  make  some  selection  from- 
among  a  number,  all  of  whom  have  been  competent  and  suc- 
cessful. Under  such  circumstances,  those  may  be  logically 
preferred  who,  because  of  an  unusual  degree  of  professional 
training,  are  well  prepared,  not  on'y  to  supervise  the  school 
in  a  mechanical  sense,  but  also  qualified  to  inspire  the  teachers 
and  give  them  direct  help  and  guidance  according  to  the  best 
standards  of  professional  practice. 

It  is  particularly  important  that  in  assigning  teachers  to  such 
special  work  as  is  taught  in  the  evening  school  classes,  notably 
the  teaching  of  English  to  foreigners,  some  method  be  devised 
for  which  there  may  be  some  assurance  that  such  teachers  are 
qualified  to  do  the  particular  type  of  work  demanded. 

Rigid  rules  for  eligibility  are  desirable  in  order  to  guarantee 
that  the  schools  of  the  future  may  be  ca  ed  for  by  the  highest 
type  of  teacher.  It  should  always  be  remembered  that  the 
teacher  who  is  admitted  to  the  school  system  to-day  is  a  poten- 
tial member  of  the  working  corps  for  a  lifetime.  From  the 

162 


very  nature  of  the  type  of  service  rendered,  relatively  few  teach- 
ers are  discharged.  Therefore  it  is  of  the  highest  importance 
that  initial  appointment  be  safeguarded  in  every  way.  For 
example,  if  it  should  seem  desirable,  ultimately,  for  the  ordinary 
teacher  to  teach  certain  subjects  formerly  considered  as  outside 
of  her  province,  such  as  music  or  drawing,  it  may  easily  be  pos- 
sible for  the  city  of  Los  Angeles  to  select  only  teachers  who  have 
these  or  other  special  requirements  and  thus  the  school  may, 
in  a  few  years,  have  in  its  employ  hundreds  of  teachers  who  are 
qualified  to  teach,  not  only  the  regular  subjects,  but  these 
subjects  in  addition. 

These  details  of  method  should  be  worked  out  by  the  Superin- 
tendent and  his  assistants.  In  the  judgment  of  your  Com- 
mittee certain  factors  are  of  importance.  Among  them  are 
education,  experience  and  the  promise  of  professional  growth. 
Educational  requirements  should  include  academic  and  technical 
training.  Minimum  academic  training  is,  in  a  measure,  guarante- 
ed by  the  state  at  the  present  time.  Los  Angeles  can,  if  it  choos- 
es, increase  the  requirements  for  academic  scholarship  by  demand- 
ing more  specific  work  of  this  nature.  Technical  or  professional 
educational  requirements  might  be  set  up  to  make  it  possible 
to  select  teachers  who  have  demonstrated  sufficient  interest 
in  teaching  to  have  made  detailed  and  continuous  preparation 
for  the  service.  Some  evidence  or  promise  of  professional 
growth  should  be  demanded.  Among  such  evidence  might  be 
mentioned  attendance  at  summer  sessions,  Saturday  courses, 
or  study  through  correspondence;  professional  reading,  travel, 
and  other  similar  activities  might  logically  contribute. 

Experience,  no  doubt,  is  of  importance,  but  efficiency  is  by 
no  means  to  be  considered  in  terms  of  experience  alone.  This 
fact  should  be  given  due  consideration  in  setting  up  require- 
ments for  eligibility  and  for  promotion.  If  the  salaries  are  to  be 
increased  from  year  to  year,  the  theory  is,  at  least,  that  this  pay- 
ment is  given  for  superior  service.  There  are  better  ways  of 
determining  increased  efficiency  than  by  measuring  increase 
of  experience  without  any  check  as  to  its  quality. 

(b)       PROBATIONARY    PERIOD 

As  relatively  few  teachers  are  dropped  after  an  appointment, 
it  is  exceedingly  important  that  the  probationary  period  be 
guarded  with  care.  There  should  be  provision  requiring  rigid 
standards  of  performance  of  duty  during  this  time;  otherwise, 
not  only  the  children  suffer  who  are  being  taught,  but  weak 
teachers  may  become  more  or  less  permanently  established  in  the 
system.  Consequently,  there  should  be  adequate  provision 
for  careful  supervision  and  checking  of  all  probationary  teachers. 

163 


(c)       RECOMMENDATIONS 

The  Committee  recommends: 

1:     That  the  requirements  for  eligibility  be  raised; 

2:  That  the  Superintendent  be  directed  to  submit  a  plan 
for  standards  of  elegibility  for  initial  appointment 
and  promotion; 

3:  That  the  probationary  period  be  supervised  and  check- 
ed. 

6.     SALARY  GRADES — DISTRIBUTION  OF  TEACHERS 

TABLE  40:     SHOWING  GRADES  OF  SALARIES  OF  PRINCIPALS  AND  TEACHERS 
IN  THE  Los  ANGELES  PUBLIC  SCHOOLS  AND  THE  NUMBER 
RECEIVING  THEM 

KINDERGARTEN    DIRECTORS    (HEAD    TEACHERS) 

Salaries $864   $888   $912   $936   $960   $984 

No.  Receiving..  16     14      6      7     14     80 


KINDERGARTEN    ASSISTANTS 

Salaries $624         $672       $720       $768       $816       $864 

No.    Receiving..  21  62  8  16  7  32 


PHYSICAL    TRAINING    TEACHERS 

Salaries..   .  .$768  $816  $864  $912  $960  $1008  $1056  $1104  $1152  $1200 


No.  receiving   1    ...    1    1    1 


REGULAR  GRADE  TEACHERS 


Salaries $768  $816  $864  $912  $960  $1008  $1056  $1104  $1152  $1200 

No.  receiving  22   45   69   67    89    68    67    65    58   621 


UNGRADED  TEACHERS 


Salaries $768  $816  $864  $912  $960  $1008  $1056  $1104  $1152  $1200 

No.  receiving   3    2    4   ...     2     3     6     8     3    60 

164 


TEACHERS    OF    SPECIAL    SUBJECTS 


Salaries 

$768 

$816 

$864 

$912 

$960 

$1008 

$1056 

$1104 

$1152 

$1200 

Agricultural.  .  . 
Batavia 

3 

1 

2 

1 

3 

2 

1 

12 
3 

Domestic 
Science  
Drawing 

18 

4 

4 
4 

5 

10 
3 

6 
1 

4 

2 

5 
1 

2 
1 

2 

18 

22 

Manual  Arts 

1 

1 

1 

1 

1 

3 

Manual  Train- 
ing. .  .  . 

6 

3 

3 

7 

5 

1 

1 

4 

1 

26 

Music   .      ... 

4 

5 

3 

4 

3 

1 

3 

2 

1 

22 

SUPERVISORS,    AND    ASSISTANTS,    OF    SPECIAL    SUBJECTS 

Salaries..  $1680  $2580 


Agricultural,  

3 

1 

Drawing,  

5 

1 

Domestic  Science 

4 

1 

Manual  Training 

2 

1 

Manual  Arts  . 

1 

1 

Music.  . 

4 

1 

Nature  Study 

2 

1 

Orchestra.  .  .  . 

2 

1 

Physical  Education 

4 

1 

Salaries  $2580  $900     $1200  $2100  $1104 

Doctors 1  1*         4  8  *$900   Physician   works 

half  time. 

Nurses.  .  7 


DEAF    TEACHERS 

Salaries $912       $1056     $1200     $1440 

No.   receiving 1  1  6  1 

ELEMENTARY    PRINCIPALS 

Salaries $1200  1280  1300  1320  1340  1360  1380  1440  1500  1560  1620 

No.  receiving..  1    7    4    9    6    6    9    4    2    3    13 

Salaries.  $1680  1740  1800  1860  1920  1980  2100  2160  2220  2280  2340  2400 
No.  receiv- 
ing.... 3    10   10   7    1    12   4    11   5    3    2    9 

165 


INTERMEDIATE    TEACHERS 


Salaries $1200  1260  1320  1380  1440  1500  1560  1600  1640  1680 

No  receiving 9         12       14       16       20       17       19       15     14^   141 

INTERMEDIATE  PRINCIPALS 

8  AT  $3000 

HIGH  SCHOOL  TEACHERS 
(including  Heads  and  Sub-Heads  of  Departments) 


Salaries 

$1200 

1260 

1320 

1380 

1440 

1500 

1560 

1600 

1640 

No  receiving  . 

6 

12 

19 

19 

25 

33 

33 

23 

21 

Salaries  

.  ..   $1680 

1740 

1800 

1860 

1920 

1980 

2040 

2100 

2160 

No  receiving. 

.  .     255 

1 

4 

2 

1 

5 

4 

6 

30 

HIGH    SCHOOL    PRINCIPALS 

Salaries $1200       2700     3000     3300     3600 

No  receiving 1*          2  4  1  4 

*  Principal  of  Wilmington  H.  S.  also  received  $1290  as  princpial  of  Wilmington  Elementary 
School. 

HIGH    SCHOOL    VICE-PRINCIPALS 

12  Vice-Principals  at $2400 

1  Vice-Principal    at 1980 

TEACHERS    EVENING    HIGH    SCHOOL  PLAYGROU-ND    TEACHERS 

134  Teachers  at  $600  (Part  Time) 

5  Principals  at  $804  62  Teachers  at  $300 

TEACHERS    ELEMENTARY    EVENING    SCHOOLS 

128  Teachers  at  $408          14  Principals  at  $600 


166 


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169 


In  making  these  comparisons  of  salaries,  it  must  be  remembered 
that  the  data  for  Los  Angeles  represents  salaries  according  to  a 
scale  adopted  as  late  as  1913-14  or  even  during  1914-15,  whereas 
the  salaries  in  other  cities  mentioned  are  with  the  exception  of 
Cleveland  for  salaries  as  they  existed  in  1912-13. 

ELEMENTARY    TEACHERS 

Accepting  the  figures  as  they  stand,  we  notice  that  Los  Angeles 
stands  high  in  the  rate  of  compensation  for  elementary  teachers, 
higher  than  any  city  of  corresponding  size  in  the  list  of  cities 
given  in  Fig.  17,  with  the  single  exception  of  San  Francisco. 
This  holds  true  not  only  for  median  salaries  as  shown  in  Fig.  17, 
but  also  for  salaries  by  groups  of  persons.  Thus,  according  to 
Fig.  18,  if  we  start  with  the  teachers  who  receive  the  lowest 
salary  we  find  among  the  first  10%  of  those  employed,  that  the 
highest  salary  received  by  any  teacher  was  $816.  Among  the 
lowest  70%  the  highest  salary  received  was  $1,172,  a  rate  ex- 
ceeded only  by  Chicago,  Boston  and  San  Francisco  from  among 
the  cities  selected  for  comparison. 

The  present  rate  of  compensation  permits  the  city  to  choose 
from  a  considerable  host  of  applicants,  for  only  a  portion  of 
whom  places  are  available.  The  wisest  administration  is  that 
which  pays  an  adequate  rate  of  compensation  and  which  then 
requires  corresponding  standards  in  the  selection  of  its  teachers. 

ELEMENTARY    PRINCIPALS 

The  comparison  of  salaries  of  elementary  principals  in  the 
schools  of  Los  Angeles  with  those  of  other  cities  will  appear 
surprising  to  those  who  have  assumed  that  the  scale  of  compensa- 
tion is  a  high  one.  Either  with  respect  to  median  salaries  (Fig. 
19)  or  to  salaries  by  groups  (Fig.  20),  the  salaries  paid  are  com- 
paratively low. 

It  must  be  remembered,  however,  that  the  compensation 
of  principals  in  Los  Angeles  schools  is  dependent  upon  the  size 
of  the  building.  Thus  among  132  who  receive  the  salary  of 
this  grade  of  service,  more  than  25%  receive  only  $160  more  per 
year  than  regular  grade  teachers.  Comparison,  therefore, 
among  cities  should  be  supplemented  by  a  knowledge  of  the  re- 
lative size  of  school  buildings  in  different  cities. 

In  any  case,  however,  the  pay  of  elementary  school  drincipals 
would  not  be  apt  to  appear  as  high  relatively  as  that  of  other 
members  of  the  school  staff,  because  the  ratio  of  increase  of  pay 
for  elementary  principals  during  the  last  five  years  has  been 
considerably  less  than  that  paid  to  teachers,  especially  to  special 
teachers,  to  teachers  of  ungraded  classes  and  to  teachers  in 
intermediate  schools. 

170 


HIGH    SCHOOL    TEACHERS 

Los  Angeles  stands  high  in  its  salary  provisions  for  high  school 
teachers.  Teachers  in  intermediate  schools  receive  the  same 
salaries  as  teachers  in  the  high  schools  if  they  have  high  school 
certificates,  and  if  they  have  not,  they  still  receive  a  higher 
salary  than  do  the  regular  teachers  of  elementary  grades. 

In  estimating,  therefore,  salaries  of  high  school  teachers,  the 
intermediate  school  teachers  might  be  included  or  omitted  ac- 
cording to  the  point  of  view.  The  median  adopted  included 
both  intermediate  and  high  schools.  Had  it  included  high 
schools  only,  the  median  rate  of  compensation  would  not  have 
been  affected. 

There  are,  however,  fifty-three  teachers  in  the  high  school 
service  who  receive  salaries  higher  than  teachers  in  the  inter- 
mediate schools  because  of  certain  grades  of  service, — heads 
and  sub-heads  of  departments, — which  do  not  exist  in  the  latter. 
In  Fig.  22  this  difference  is  noted.  If  the  teachers  in  high 
schools  only  be  included,  the  highest  salary  paid  to  the  90% 
group  of  high  school  teachers  is  $1,800.  If  teachers  in  the  inter- 
mediate and  high  schools  be  included,  the  highest  salary  paid  is 
$1,680. 

An  examination  of  the  curve  will  show  that  Los  Angeles  has  a 
narrower  range  in  variation  in  high  school  salaries  than  other 
cities  have.  The  lowest  salary  paid  is  $1,200,  the  highest  $2,160, 
a  variation  of  $960.  In  other  cities  the  variation  for  high  school 
teachers  may  exceed  $2,000. 

In  Los  Angeles  the  younger  teacher  tends  to  receive  a  higher 
rate  of  pay  than  do  teachers  in  other  cities.  On  the  other  hand, 
in  the  majority  of  the  cities  listed  in  Fig.  21,  high  school  teachers 
having  special  grades  of  service  or  long  service  apparently 
receive  higher  salaries  than  do  such  teachers  in  Los  Angeles. 


171 


7.     SERVICES  OF  TEACHERS 
(a)  DISTRIBUTION  OF  TEACHERS  ACCORDING  TO  RATINGS 

TABLE  41:     SHOWING  RATINGS  OF  TEACHERS  IN  THE  PUBLIC  SCHOOLS  OF 
Los  ANGELES  AS  CONTAINED  IN  THE  QUARTERLY  REPORTS,  FEBRUARY,   1916 


Type  of  school  

Total 

Sf 

8 

8- 

F 

NS 

All  types  of  schools 

3303 

12 

2961 

80 

218 

32 

Evening  schools                             .  . 

317 

0 

274 

1 

33 

9 

Day  schools  
Day  high  schools  

2986 
512 

12 
0 

2687 
454 

79 
10 

185 

45 

23 
3 

Day  intermediate  schools  
Other  day  schools  

301 
2173 

0 
12 

.     280 
1953 

0 
69 

18 
122 

3 

17 

Evening  high  schools  

148 

0 

118 

0 

21 

9 

Other  evening  schools  

169 

0 

156 

1 

12 

0 

Music  department  — 
(By  supervisors)                           .  . 

20 

0 

0 

2 

10 

8 

Drawing  department  
Home  economics  department  .... 

20 

78 

0 
0 

13 
51 

0 
21 

7 
6 

0 
0 

Total  ratings  of  supervisors  

118 

0 

64 

23 

23 

8 

PERCENTAGES  OF  THE  ABOVE  TABLES 


All  types  of  schools  

100 
100 
100 
100 
100 
100 
100 
100 
100 

.4 
0 
.4 
0 
0 
.5 
0 
0 
0 

89.6 
86.4 
89.9 
88.6 
93. 
89.9 
79.7 
92.3 
54.2 

2.4 
.3 
2.6 
2. 
0 
3.1 
.0 
.5 
195 

6.6 
10.4 
6.2 
8.7 
5.9 
5.6 
14.2 
7.1 
19.5 

.9 
2.8 
.8 
.5 
1.0 
.8 
6.0 
0 
fi.8 

Evening  schools  

Day  schools 

Day  high  schools  
Day  intermediate  schools 

Other  day  schools  .... 

Evening  high  schools  
Other  evening  schools  
Music,  Drawing,  Home  Econ.  .  .  . 

Note  —  "S+"  is  more  than-  satisfactory.      "S"  is    satisfactory.      "S  —  "  is  better  than  fair    and 
barely  satisfactory.     "F"  is  fair.     "N  S"  is  not  satisfactory. 

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172 


The  large  proportion  of  the  teachers  in  the  elementary  and 
high  schools  marked  "satisfactory"  is  not  unusual.  In  all 
school  systems  the  ratio  of  satisfactory,  good  or  excellent  teach- 
ers, as  evidenced  by  principal's  rating  is  high.  It  is  to  be 
expected  that  intermediate  schools  should  show  the  highest 
percentage  of  satisfactory  teachers,  because  the  great  majority 
of  them  were  selected  from  the  elementary  schools  on  account 
of  superior  qualities. 

A  more  careful  discrimination  has  been  shown  by  the  princi- 
pals of  evening  high  schools  than  by  the  principals  of  evening 
elementary  schools.  Not  a  single  elementary  evening  school 
teacher  was  considered  as  "not  satisfactory",  a  judgment  which 
seems  to  be  exceedingly  generous  in  view  of  the  character  of  the 
work  done  in  some  of  the  classes.  It  is  customary  however  to 
mark  no  one  "not  satisfactory"  whose  class  survives. 

Very  few  teachers  leave  the  Los  Angeles  school  system  in 
voluntarily.     Inasmuch  as  teachers  are  a  highly  selected  group 
of  people,  this  is  a  natural  condition.     There  have  been  occasions 
when  unsatisfactory  teachers,  conscious  of  their  failure,  voluntari- 
ly resign.     Few  are  discharged  outright. 

It  is  hardly  to  be  expected,  however,  that  these  teachers  are 
of  equal  merit,  even  though  they  are  all  marked  satisfactory. 
The  existing  schedule  of  salaries  provides  an  automatic  increase 
of  salary  for  ten  years.  This  is  an  easy  form  of  salary  adjust- 
ment, but  such  a  system  is  not  calculated  to  be  of  such  stimulat- 
ing growth  to  teachers  as  a  system  based  on  merit.  According 
to  the  present  schedule,  a  group  of  100  teachers  will  all  advance 
at  the  same  rate  for  a  period  of  twelve  years.  It  is  hardly  to  be 
expected  that  all  the  members  of  the  group  will  be  worth  the 
same  amount  of  money  at  the  end  of  five  years  or  ten  years. 

Some  of  these  teachers  will  take  a  great  interest  in  their 
work;  will  do  professional  reading;  will  attend  special  classes  in 
the  summer  school,  or  make  special  investigations  or  trips  to 
increase  their  effectiveness.  Others  will  spend  no  time  outside, 
either  in  advanced  study  or  special  investigation.  It  is  unfor- 
tunate that  public  funds  are  to  be  administered  in  such  a  way 
as  to  advance  people  automatically  rather  than  on  a  basis  of 
relative  value. 


173 


THE    COMMITTEE  RECOMMENDS 

(b)       RECOMMENDATIONS 

1:  That  the  division  or  bureau  which  the  committee  has 
already  recommended  should  be  established  in  the 
office  of  the  City  Superintendent,  shall  submit 
methods  for  determining  the  relative  efficiency  of 
teachers. 

2:  That  such  proposed  methods  should  contain  provisions 
for  a  system  of  promotion  on  merit  which  shall  serve 
to  stimulate  professional  growth. 


174 


XII 

RECOMMENDATIONS  FOR  A  DIVISION  OF 

EDUCATIONAL  RESEARCH,  STATISTICAL 

INFORMATION,  ETC. 

The  reports  of  the  offices  of  the  Board  of  Education,  so  far  as 
they  go,  are  excellent;  the  only  difficulty  is  that  they  do  not  go 
far  enough.  Information  is  very  hard  to  get  from  the  reports. 
It  is  our  recommendation  that  the  whole  system  of  checking 
up  reports  and  records  of  the  Educational  Department  be  re- 
organized and  expanded  with  a  view  toward  making  it  possible 
for  members  of  the  Board  of  Education  or  the  public  to  be  able 
to  get  at  pertinent  facts  concerning  the  schools  at  a  moment's 
notice. 

The  present  system  of  reports  and  records  is  the  outgrowth 
of  a  system  that  has  been  in  operation  for  many  years.  Changes 
are  made  from  time  to  time,  but  these  changes  are  .not  made  in 
such  a  way  as  to  make  it  possible  for  the  reports  to  present  an 
organized  whole. 

Principals  and  teachers  are  being  constantly  required  to  fill 
out  reports,  but  after  these  reports  are  filled  out  they  do  not 
dovetail  in  such  a  way  to  make  them  significant  or  consistent. 
The  office  staff  is  not  sufficiently  large  at  the  present  time  to 
handle  the  statistical  data  which  should  be  available  to  a  city 
the  size  of  Los  Angeles.  Sporadic  investigations  are  made  from 
time  to  time  by  the  Board,  the  Superintendent,  the  Auditor's 
Department,  the  State  Board  of  Control,  or  some  committee 
of  teachers.  From  the  very  nature  of  the  case,  it  is  impos- 
sible to  find  out  the  situation  with  these  sorts  of  records.  With 
very  few  exceptions,  the  various  compilations  were  not  directly 
available  in  any  of  the  offices  of  the  Board  of  Education.  They 
had  to  be  worked  from  the  original  data. 

A  bureau  of  research  should  reorganize  the  present  system  of 
records.  It  should  also  devise  the  best  methods  by  which  data 
may  be  collected  and  compiled.  The  records  should  serve  to 
check  errors,  eliminate  waste,  and  give  information  definitely 
and  completely  to  all  who  desire  it. 

Recommendation  for  the  establishment  of  the  division  of 
educational  research  will  be  found  on  many  pages  of  this  re- 
port. The  various  duties  suggested  for  such  a  division  do  not 
include  all  the  functions  which  it  would  discharge. 


175 


Properly  organized,  it  would  greatly  facilitate  the  work  of  the 
executive  officers.  It  would  present  facts  rather  than  opinions. 
Its  establishment  shoud  result  in  a  reduction  of  unnecessary 
duplication  and  waste,  whether  educational  or  economical. 


176 


XIII 
THE  BOARD  AND  THE  SUPERINTENDENT 

The  Superintendent  of  Instruction  should  be  given  definite 
powers  and  should  be  held  responsible  for  definite  things.  The 
policies  of  the  Board  should  not  be  formulated  until  after  there 
has  been  a  complete  understanding  on  the  part  of  the  Board 
as  to  the  purposes  and  plans  of  Ihe  Superintendent,  but  the 
Superintendent  should  then  be  held  rigidly  responsible  for 
carrying  out  such  policies  and  regulations  and  for  such  methods 
of  organization  of  his  staff  as  will  do  so  effectively. 

The  Superintendent  is,  or  ought  to  be,  an  expert  who  knows 
the  business  of  education  as  the  manager  of  a  railroad  division 
knows  the  business  of  railroading,  or  as  the  president  of  a  bank 
knows  banking.  This  does  not  mean  that  a  superintendent 
should  assume  a  high-handed  attitude  with  the  public,  or  with 
the  Board,  nor  that  he  should  ignore  the  Board.  Rather  that 
he  should  work  with  the  Board  and  the  Board  should  work  with 
him  to  the  extent  of  formulating  a  policy  for  the  wisest  expend- 
iture of  the  public  funds  for  the  purpose  for  which  they  were 
raised.  A  board  of  education  should  not  be  inactive.  Rather 
a  board  of  education  should  be  as  active  as  the  present  Board 
now  is  in  the  expenditure  of  time  and  energy  in  getting  a  grasp 
of  the  large  problems  of  education  and  in  formulating  a  civic 
policy  in  regard  to  schools. 

RECOMMENDATIONS 

The  Committee  recommends: 

1:     That  this   Board  formulate   its   general   policies   from 
time  to  time,  and 

2:     That   it   establish   regulations   for   carrying   out   these 
policies. 

In  submitting  this  report  this  Committee  desires  to  acknowl- 
edge to  the  Board  of  Education  its  deep  appreciation  of  the  many 
courtesies  received  from  its  members. 

It  also  wishes  to  refer  to  the  readiness  at  all  times  of  all  the 
members  of  the  advisory  and  teaching  corps  to  assist  the  mem- 
bers of  the  Committee  in  every  way. 

WALTER  A.  JESSUP 
ALBERT  SHI  ELS 


177 


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